REPORT 


Joint  Committee  on  Administra- 
tive Reorganization 


With  Surveys  of  State  Administration 
Agencies 


Pursuant  to  the  Senate  Joint  Resolu- 
tion No.  36,  adopted  by  the  General 
Assembly    of   Ohio,    April   9,    1919 


COLUMBUS,    OHIO: 

The  F.  J.  Hebr  Printing  Co. 

1921 

Bound  at  the  State  Bindery. 


As- 

Ore 


CONTENTS 


JOINT  COMMITTEE  ON  ADMINISTRATIVE  REORGANIZATION 

Senate  Joint  Resolution  No.  36,  V ;  Introductory  Note,  V ;  Preliminary  report 
of  committee,  VII ;   Resolution   proposed   by  committee,   XII. 

FIELD  INVESTIGATORS 
Names  and  brief  sketches  of,  2. 

REPORTS  OF  DR.  DON  C.  SOWERS 
Summary  of  recommendations  of  field  investigators,  3-38;   office  of  the  gov- 
ernor, 39-42;  state  department  of  agriculture,  83-94;  Ohio  agricultural  experiment 
station,  101-106;  tax  commission,  146-149. 

REPORTS  PREPARED  UNDER  DIRECTION  OF  DR.  L.  D.  UPSON 

by 

Harrington  Place 
Civil  service,  59-82. 

C.  E.  Right  or 
Budget  commissioner,  43-58;    department  of   finance,   140-143;   state  insurance 
department,  164-171;  superintendent  of  banks  and  banking,  172-177;  department  of 
building  and  loan  associations,  178-182. 

C.  E.  Rightor  and  Henry  Steffens,  Jr. 
Auditor  of  state,  110-126. 

Arch  Mandel 
Secretary  of  state,  127-139;  industrial  commission,  242-272;  state  fire  marshal, 
293-297 ;  state  oil  inspector,  298-300. 

Henry  Steffens,  Jr. 
Treasurer  of  state,  144-145. 

REPORTS  BY  DR.  WILLIAM  H.  ALLEN 

State  department  of  health,  183-191;  tuberculosis  sanatorium,  191-194;  bureau 
of  vital  statistics,  195-197;  state  leadership  in  Ohio  education,  305-307;  Ohio's 
state  supported  education,  307-315;  Ohio's  state  department  of  public  instruction, 
315-321;  increase  the  salary  of  Ohio's  state  superintendent  of  public  instruction, 
321-325;  tax  assessments  for  school  revenues,  325-326;  state  board  of  school  exam- 
iners, 326-327;  state  library  service,  327-329;  representative  state  educational  coun- 
cil, 329-330;  Ohio  state  archseological  and  historical  society,  331-333;  an  art  com- 
mission for  Ohio,  333-337 ;  suggestions  by  county  and  city  superintendents  for 
improving  Ohio's  public  education,  337-342 ;  suggestions  by  Ohio's  state  faculties 
for  Ohio's  public  education,  342-361 ;  examining  boards  belong  in  educational  de- 
partment, 361-369;  possible  forward  steps  in  Ohio  education  without  reorganizing 
the  state  department  of  education,  369-373;  Ohio's  three  universities,  374-385;  Ohio's 
need  for  junior  colleges,  385-391 ;  faculty  organization,  391-395 ;  remunerative  work 
by  faculties,  395-399;  non-remunerative  diversion  of  faculty  energy,  399-400;  inter- 

(iii) 


M  8062 


IV  CONTENTS 

changeable  credit  for  work  in  Ohio  schools,  4O(i-401  ;  annual  reports  and  catalogues 
of  Ohio  educational  institutions,  401-406;  non-resident  students  in  Ohio  univer- 
sities, 400-410:  Ohio  State  university,  410-422:  graduate  school  and  graduate  work 
in  Ohio  state  university,  422-428;  organization  for  research,  429-436;  medical  and 
near  medical  colleges,  Ohio  State  university,  436-439 :  Ohio's  state  provision  for 
teacher  training,  440-446;  normal  college  or  normal  school?  447;  advertising  the 
rewards  of  teaching,  447-450 ;  finding  positions  for  teachers  and  teachers  for  posi- 
tions, 4-51-4o5;  college  of  education,  455-463:  shall  the  teaching  profession  be  sub- 
sidized? 463-467;  loan  funds  for  students  preparing  to  teach,  467-469;  Ohio's 
county  normal  schools,  469-479;  college  credit  for  county  normal  work,  480-481: 
slacker  counties  in  teacher  training,  481 ;  combined  normal  and  industrial  depart- 
ment at  Wilberforce  university,  481-487 ;  shall  Ohio  have  a  chancellor  of  educa- 
tion, 487-488;  unsettled  educational  problems  in  Ohio,  488-494;  tenure  of  voluntary 
boards,  494-496;  need  for  rotary  funds,  496-498;  one  head  for  four  in  administering 
welfare  institutions,  499-513;  physical  education  at  the  schools  for  the  blind  and 
the  deaf,  514-517;  Ohio  commission  for  the  blind,  518;  preventive  education  as  to 
sub-normals,  519-522;  Ohio  hoard  of  state  charities,  523-530;  Ohio  board  of  clem- 
ency, 552-555;  Ohio  soldiers'  and  sailors'  orphans'  home,  556-563;  citizen  co-opera- 
tion needed  by  director  of  welfare  administration,  564-565. 
REPORT  BY  DR.  WILLIAM  H.  ALLEN  AND  ROBERT  ROSENBLUTH 
Opportunities  for  the  Ohio  board  of  administration  that  do  not  require  reor- 
ganization, 531-551. 

REPORTS  BY  GAYLORD  C.  CUMMIN 

Adjutant  general's  department.  107-li»8;  commissioner  of  soldiers'  claims,  108- 
109;  state  printing,  151-159;  commissioner  of  securities,  100-163;  state  highway 
department,  198-212;  department  of  public  works,  213-217;  superintendent  of 
buildings,  218-237;  state  building  commission,  238-239:  state  geologist,  240-241: 
jHiblic  utilities  commission,  301-304;  proposed  new  penitentiary.  566-574. 

REPORT  BY  S.  H.  WOLFE 
Ohio's  state  insurance  fund,  273-289. 

REPORT  BY  J.  I.  FALCONER 
State  farms,  94-100. 

REPORTS  BY  C.  B.  GALBREATH 

Shall  the  state  insurance  fund  pay  the  cost  of  its  administration?  290-292; 
administrative  reorganization  in  other  states.  575-617;  bibliography  on  efficiency 
and  economy  with  special  reference  to  state  government,  648-659. 


JOINT  COMMITTEE  ON  ADMINISTRATIVE 
REORGANIZATION 

INTRODUCTORY  NOTE 
In  recent  years  a  movement  has  been  in  progress  in  the  United 
States  to  simpHfv  government  and  to  render  it  more  efficient  and 
economical.  This  movement  began  with  the  national  government  but 
was  afterward  extended  to  the  states  where  it  has  had  most  effective 
recognition.  In  a  number  of  states  efficiency  and  economy  commissions 
have  been  created  to  make  surveys  of  administrative  functions  and 
report  opportunities  for  improvement  through  consoHdation,  elimination 
and  reorganization.  This  movement  has  had  much  encouragement 
through  the  public  press.  Reports  of  what  had  been  accomplished  in 
other  states,  especially  in  the  state  of  Illinois,  added  to  the  interest  in 
this  movement  and  no  doubt  had  influence  in  the  creation  of  a  demand 
for  such  a  commission  in  Ohio.  To  meet  this,  the  General  Assembly  at 
its  regular  session  in  1919  took  steps  to  make  appropriate  provision. 
Senator  F.  E.  Whittemore  introduced  Senate  Joint  Resolution  No.  36 
which  was  adopted  April  9.  1919,  in  the  following  form: 

Whereas,  The  general  assembly  of  the  state  of  Ohio  has  from 
time  to  time  created  various  offices,  bureaus,  boards,  departments,  and 
commissions,  and  other  additions  to  the  state  government ;  and 

Whereas,  The  duties  and  functions  of  these  various  commissions, 
boards  and  bureaus  frequently  and  in  many  cases  overlap  and  conflict, 
one  with  the  other,  and  with  the  state  departments,  and  the  expenses 
of  administration  have  multiplied  greatly  during  recent  years ;  and 

Whereas,  The  duties  of  these  various  commissions,  bureaus  and 
boards  could,  in  many  instances,  be  more  efficiently  and  more  econom- 
ically performed,  waste  eliminated  and  duplication  of  authority  dis- 
pensed with,  by  combining  and  consolidating  many  departments,  and 
abolishing  those  which  are  superfluous  and  are  unnecessary  drains  on 
the  public  treasury;  and  .       ,,     ,  . 

Whereas,  By  reason  of  the  rapid  growth  of  our  state  in  all  ot  its 
departments  of  government  a  thorough  reorganization  is  essential  with  a 
view  to  greater  efficiency  and  greater  economy ;  therefore 

Be  it  resolved  by  the  Senate  and  the  House  of  Representatives  of 
the  State  of  Ohio,  That  a  joint  committee  of  six,  composed  of  three 
senators,  to  be  appointed  bv  the  president  of  the  senate,  not  more  than 
two  of  whom  shall  be  of  the  same  political  party,  and  three  representa- 
tives, to  be  appointed  by  the  speaker  of  the  house,  not  more  than  two 
of  whom  shall  be  of  the  same  political  party,  who  shall  have  full  power 
and  authority  to  examine  into  accounts  and  business  management  of  the 
various  boards  and  departments  of  state,  and  generally  to  examine  into 
and  investigate  all  of  the  boards,  commissions,  bureaus,  and  all  offices 
which  have  been  created  bv  the  general  assembly ; 

(v) 


VI  JOINT    COMMITTEK    ON    ADMINISTRATIVE    REORGANIZATION 

Such  investigations  to  be  made  with  a  view  of  securing  a  more  per- 
fect system  of  accounting,  combining  and  centralizing  the  duties  of  the 
various  departments,  eHminating  such  as  are  useless  and  securing  for  the 
state  of  Ohio  such  a  reorganization  of  its  governmental  activities  as  will 
promote  greater  efficiency  and  greater  economy  therein ; 

Be  it  further  resolved,  That  the  joint  committee  shall  have  full 
power  and  authority  to  subpoena  witnesses,  to  examine  and  compel  the 
production  of  books,  papers,  and  documents,  and  to  employ  expert  ac- 
countants, attorneys,  actuaries,  stenographers,  and  other  assistants  nec- 
essary to  carry  on  their  investigation  and  make  their  report; 

Be  it  further  resolved.  That  the  expenses  of  said  committee  and  of 
the  persons  to  be  employed  shall  be  paid  out  of  an  appropriation  made 
therefor  by  the  general  assembly  upon  vouchers  properly  drawn  upon 
the  auditor  of  state,  signed  by  the  chairman  and  secretary  of  the  joint 
committee,  and  properly  itemized.  The  committee  shall  conduct  its  in- 
vestigation and  report  its  findings,  and  make  its  recommendations  to- 
gether with  such  bill  or  bills  as  it  may  deem  proper  to  submit  to  the 
general  assembly; 

Be  it  further  resolved,  That  the  finance  and  appropriation  com- 
mittees of  the  house  of  representatives  and  the  senate,  are  authorized 
and  directed  to  make  a  sufficient  appropriation  for  the  expenses  of 
carrying  out  the  provisions  of  this  resolution. 

Acting  under  the  provisions  of  this  resolution  the  following  com- 
mittee was  appointed:  Senators:  F.  E.  Whittemore,  Wallace  W.  Bellew, 
Howell  Wright.  Representatives :  C.  C.  Crabbe,  Robert  C.  Dunn,  J.  E. 
Foster. 

On  July  8.  1919,  the  committee  met  and  organized  by  electing  Sen- 
ator Whittemore  Chairman,  Senator  Wright  Vice  Chairman,  and  Rep- 
resentative Crabbe  Secretary.  At  this  preliminary  meeting  C.  B.  Gal- 
breath  was  employed  to  make  a  chart  graphically  representing  the  dif- 
ferent administrative  agencies  of  the  state  as  at  present  organized.  This 
was  done  and  the  chart  presented  and  considered  at  the  next  meeting 
of  the  committee.  Mr.  Galbreath  was  then  directed  to  make,  with  such 
material  as  he  could  gather  through  correspondence  and  reports,  a  sur- 
vey of  what  had  been  accomplished  in  other  states  that  had  appointed 
similar  committees  or  other  agencies  to  make  investigations  in  the  interest 
of  efficiency  and  economy.  These  surveys,  as  they  were  made,  were  to 
be  reported  in  typewritten  form  to  each  member  of  the  committee. 

The  committee  decided  that,  in  order  to  carry  out  successfully  the 
provisions  of  the  resolution  under  which  it  was  created,  the  best  avail- 
able talent  should  be  secured  to  conduct  investigations  in  the  different 
state  departments.  At  a  later  meeting,  D.  C.  Sowers,  Ph.  D..  Director 
of  the  Akron  Bureau  of  Mu'.iicipal  Research,  was  chosen  executive 
secretary  of  the  committee. 

On  recommendation  of  Dr.  Sowers  the  following  investigators  were 
chosen  to  conduct  the  field  work:  Wm.  H.  Allen,  Ph.  D.,  Director  of  the 
Institute    for    I'ublic   Service.   New   York   City;   D.    D.    Upson.    Ph.   D.. 


JOINT    COMMITTEE    ON    ADMINISTRATIVE    REORGANIZATION  vii 

Director  of  the  Detroit  Bureau  of  Governmental  Research ;  Gaylord  C. 
Cummin,  C.  E.,  Consulting  Engineer  of  the  Institute  for  Public  Service, 
New  York  City. 

Col.  S.  H.  Wolfe,  Consulting  Actuary  of  New  York  City,  was 
employed  to  make  a  special-  investigation  of  the  administration  of  the 
state  insurance  fund  under  the  industrial  commission. 

Acting  under  the  direction  of  Dr.  D.  D.  Upson  much  of  the  special 
work  assigned  to  him  was  done  by  C.  E.  Rightor,  Captain  Harrington 
Place.  Arch  Mandel  and  Henry  Stefifens,  Jr. 

These  field  agents  were  directed  to  make  a  survey  of  the  different 
departments  of  the  state  government  and  report  suggestions  of  any 
changes  that  in  their  judgment  should  be  made.  They  were  given  entire 
freedom  in  their  work  and  the  cooperation  of  departments,  boards,  com- 
missions and  officials  administering  the  affairs  of  the  state  was  solicited 
and  freely  given. 

The  reports  of  all  these  experts  and  Mr.  Galbreath,  are  herewith 
submitted  in  full,  together  with  the  preliminary  report  of  the  committee. 


PRELIMINARY   REPORT   ON   ADMINISTRATIVE   REORGAN- 
IZATION. 

Submitted    by   the  Joint    Legislative   Ccnunittee   on   Administrative 
Reorganization. 

To  the  General  Assembly : 

Your  Joint  Legislative  Committee  on  Administrative  Reorganiza- 
tion, appointed  pursuant  to  senate  joint  resolution  No.  36,  by  Mr. 
Whittemore,  has  assumed  that  in  the  opening  days  of  this  adjourned 
session  you  would  wish  from  it  only  a  brief  report  of  progress. 

For  doing  the  work  already  undertaken  by  the  state  we  have  gone 
far  enough,  even  in  a  few  short  weeks  of  study,  to  see  the  possibility 
of  saving  many  times  the  total  appropriation  for  this  committee. 

The  three  sources  of  direct  waste  of  money  and  energy  are  defective 
organization,  defective  operation  and  programs  that  are  too  small  for 
Ohio's  present  needs. 

The  responsibility  for  waste  of  money  and  energy  and  of  opportunity 
is  also  threefold:  Constitutional  requirements  which  foster  waste  and 
mismanagement ;  statutory  requirements  which  foster  waste  and  misman- 
agement; and  administrative  break-downs  or  defects  in  internal  organiza- 
tion which  can  be  corrected  without  change  of  statute  or  constitution. 

For  correcting  these  conditions  the  committee  is  considering  pro- 
posals which  have  come  to  it  from  citizens  and  agencies  in  all  parts  of 
the  state.     Some  few  will  require  constitutional  amendments ;  most  of 


viii  JOINT     COMMITTEK    OX     ADM  I  XlSTRATIVK     KKORCAXIZ  ATK IX 

ihem  will  require  only  statutory  changes,  in  making  which  the  executive 
will  have  every  reason  to  co-operate  with  the  legislature.  A  few  of  the 
more  serious  defects  of  administration  that  require  neither  statutory  nor 
constitutional  change  will  undoubtedly  be  corrected  as  the  facts  are  re- 
ported to  the  responsible  ofificers  and  to  the  public. 

For  49  present  separate  administrative  offices,  departments,  boards, 
commissions  and  agencies  to  which  appropriations  are  made  we  are 
asked  to  propose  a  reduction  to  not  more  than  i6,  probably  fewer,  with- 
out making  any  mere  paper  changes,  and  consolidating  only  for  improv- 
ing service. 

We  are  asked  to  consider  the  possibility  of  reducing  the  number 
of  existing  trustees  and  commissioners,  while  at  the  same  time  i)romoting 
increased  efficiency. 

One  vast  gain,  one  almost  new  service,  namely,  continuous  analytical 
audit  of  operation  results,  we  shall  suggest  in  addition  to  the  i)resent 
audit  of  accounts.  The  time  has  come  for  our  state,  spending  as  it  does 
over  twenty  million  dollars  a  year,  to  take  more  intelligent  and  business- 
like interest  in  the  results  of  this  expenditure.  For  exarple,  ihe  present 
audit  finds  out  whether  the  orders  for  printing  are  according  to  law  and 
the  prices  according  to  contract ;  that  is  a  financial  audit.  An  operation 
audit  would  point  out  that  by  multigraphing  instead  of  printing  the  lists 
of  automobile  registration  numbers,  enough  would  be  saved  to  net 
$13,000  a  year  plus  an  enormous  amount  of  time.  When  the  auditor  of 
state  reports  a  difiference  between  the  supplies  sup])ose(l  to  be  on  hand 
and  the  supplies  actually  on  hand,  that  is  a  financial  .'  udit.  When  he 
states  that  girls  in  the  industrial  school  suffering  from  venereal  diseases 
are  without  medical  care  he  is  making  an  operation  audit.  To  check  salary 
vouchers  for  the  state  universities  against  salary  expenditure  is  a  finan- 
cial audit.  To  point  out  that  Ohio  is  not  charging  tuition  to  several 
hundred  non-resident  students  is  an  operation  audit. 

As  typical  of  changes  in  organization  that  can  easily  be  effected  by 
the  legislature  without  constitutional  amendment,  the  following  have 
been  proposed  to  us : 

I  .  Abolition  of  the  advisory  council  to  the  highway  department 
and  other  changes  in  organization  will  result  in  a  saving  of 
$52,000  a  year  without  loss  of  efficiency. 

2.  Consolidation,  under  constitutional  officer,  of  superintendent  of 
])ublic  works,  the  supervision  of  highways,  canals,  state  lands, 
state  parks,  public  buildings  and  state  geologist. 

3.  The  establishment  of  an  unpaid  board  of  education  to  sup- 
plement the  state  superintendent  of  public  instruction  in  super- 
vising elementary  and  secondary  schools,  in  enforcing  adequate 
standards  of  instruction  in  the  industrial  schools,  reformatories 
and  orphans'  home  at  Xenia,  and  in  collecting  and  publishing 
information  with  respect  to  normal  schools  and  universities. 


JOINT    COMMITTEE    ON    ADMINISTRATIVE     REORGANIZATION  IX 

4.  The  substitution  of  one  for  four  commissioners  for  the  work 
of  tlie  present  board  of  administration  and  the  administrative 
work  of  the  board  of  charities. 

5.  Transier  of  the  bureau  of  vital  statistics  from  the  secretary 
of  state's  office  to  the  department  of  heaUh. 

6.  Giving  to  the  state  auditor  the  duty  of  auditing  the  results  of 
state  work  as  well  as  the  financial  accounts. 

7.  Consolidation  under  one  administrative  officer  several  of  the 
present  inspectional  services,  and  a  similar  consolidation  of 
registering  and  licensing  services. 

8.  Abolition  of  the  separate  college  of  homeopathy  at  the  state 
university  and  provision  for  a  separate  course  in  materia 
medica  peculiar  to  the  homeopathic  school  in  the  main  college 
of  medicine  at  the  state  university. 

9.  Abolition  of  the  printing  commission  and  supervisor  of  public 
printing  and  establishment  of  central  purchasing  of  printing 
under  the  purchasing  agent  responsible  for  other  central  pur- 
chases. 

10.  Transfer  of  dairy  and  food  division  from  the  department  of 
agriculture  to  the  department  of  health. 

11.  Reorganization  of  present  election  system,  which  is  flagrantly 
cumbersome  and  unnecessarily  expensive. 

12.  Making  the  cost  of  administration  of  the  state  insurance  fund 
a  direct  charge  upon  the  insurance  fund  instead  of  being  paid 
out  of  state  appropriations. 

13.  Repeal  of  laws  providing  for  confirmation  of  appointments  by 
the  Senate. 

14.  Modification  of  the  civil  service  laws  to  carry  out  the  original 
theory  of  civil  service,  which  was  to  insure  the  highest  obtain- 
able capacity  above  a  minimum  of  qualifications  for  employees 
entering  public  service,  but  which  is  at  present  too  frequently 
administered  as  an  agency  for  holding  incompetents  on  their 
jobs. 

Typical  of  changes  which,  if  approved,  would  require  constitutional 
amendment,  the  following  have  been  proposed  to  us : 

1 .  Lengthening  the  term  of  the  governor  from  two  years  to  four 
years. 

2.  Separation  of  the  auditing  from  the  operating  function  of  the 
auditor  of  state  with  a  view  to  placing  the  operating  function 
such  as  actual  bookkeeping  in  an  executive  department  respon- 
sible to  the  governor,  but  enlarging  the  auditor's  powers  and 
duties  to  audit  the  operation  of  administrative  departments  so 


X  JOINT    COMMITTEE    ON    ADMINISTRATIVE    REORGANIZATION 

as  to  compare  results  obtained  with  amounts  expended  as  well 
as  to  test  the  honesty  and  accuracy  of  bookkeeping. 
3.  Placing  the  appointment  of  the  state  superintendent  of  public 
instruction  in  the  hands  of  a  small  appointive  board  instead  of 
as  at  present  with  the  governor  and  changing  his  term  of  office 
from  the  present  constitutional  limit  of  four  years  to  a  longer 
term  or  an  indefinite  term  subject  to  the  board  of  education. 

Typical  of  conditions  which  need  correction  but  which  require  no 
legislation  and  can  be  remedied  by  executive  action,  the  following  have 
been  reported  to  us : 

1.  The  electric  wiring  in  state  house  and  the  method  of  storing 
supplies  constitute  a  menace  to  life  and  property. 

2.  From  twenty  to  thirty  thousand  dollars  a  year  might  easily  be 
saved  by  the  introduction  of  a  central  multigraph  service. 

3.  The  state  library  has  practically  abandoned  the  important  serv- 
ice of  library  organization. 

4.  The  girls'  industrial  school  is  and  for  years  has  been  without 
running  hot  water  for  baths  and  without  soft  water  for  domestic 
and  laundry  use. 

5.  The  state  board  of  charities  has  practically  discontinued  visita- 
tion by  board  members  of  institutions  under  its  supervision. 

6.  Charity  franchises  are  in  effect  admitted  to  practice  upon  the 
helpless  and  the  dependent  of  this  state  without  elementary 
protective  questions  being  asked  by  the  secretary  of  state  be- 
fore granting  their  charter. 

7.  The  co-operation  between  the  civil  service  commission  and  the 
departments  can  be  vastly  increased  without  any  additional 
expense. 

8.  A  central  telephone  system  for  state  house  and  state  depart- 
ments would  save  money  and  increase  efficiency. 

9.  Records  that  now  contain  invaluable  information  can  be  made 
to  give  up  and  advertise  that  information  for  public  uses. 

Tyi^ical  of  services  said  to  be  needed  which  are  not  yet  being  ade- 
quately rendered  or  are  not  being  undertaken  at  all.  the  following  have 
been  reported  to  us : 

I .  Biennial  reports  which  clearly  set  forth  state  needs,  state  work 
and  state  costs  are  desired  by  the  public  and  reporting  depart- 
ments and  are  indispensable  to  the  legislature,  to  the  budget 
commissioner  and  to  the  executive  himself.  Such  reports  will 
make  it  possible  with  reasonable  ease  to  pass  intelligently  upon 
budget  requests. 


JOINT    COMMITTEE    ON    ADMINISTRATIVE    REORGANIZATION  XI 

2.  A  bureau  of  markets  which,  while  paying  due  regard  to  the 
interest  of  producing  farmers  and  gardeners,  would  also  be 
alert  in  representing  the  consumers.  The  shortsightedness  of 
a  policy  which  handles  a  bureau  of  markets  from  the  stand- 
point of  producers  alone  is  obvious  when  it  is  remembered  that 
producers  are  also  consumers. 

3.  Self  study  is  needed  by  departments  of  their  own  responsibili- 
ties, operation,  methods  and  results  and  searching  analysis  to 
complete  operation  audit  of  all  state's  services. 

4.  Public  recognition  of  the  fact  that  it  is  a  penny-wise  pound 
foolish  policy  in  state's  business  as  in  private  business  to  send 
a  boy  on  a  man's  job  or  to  employ  incompetent  persons  on  work 
where  competent  persons  are  needed. 

5.  Definition  and  enforcement  of  state  standards  for  weights  and 
measures,  oils,  gasoline,  gas,  electricity,  and  various  materials 
and  suppHes. 

6.  Several  instances  have  come  to  our  attention  where  departments 
have  undertaken  services  which  are  not  being  adequately  per- 
formed. It  is  vastly  safer  to  advertise  the  fact  that  work  is 
not  being  undertaken  at  all  by  state  departments  than  to  give 
a  sense  of  security  to  the  public  by  undermanned,  underpro- 
grammed  activities. 

7.  The  unification  of  the  educational  interests,  universities,  normal 
schools,  special  schools,  secondary  schools,  elementary  schools 
and  local  county  and  state  supervision  in  one  great  strongly 
organized  properly  co-operating  service  whose  two  main  char- 
acteristics are  common  aim  and  team  work.  Development  of 
research  laboratories,  research  standards  and  a  scientific  re- 
search supervision  at  the  state  university  is  urged  by  the  facul- 
ties of  state  supported  and  privately  supported  institutions. 
More  use  of  the  state's  technically  equipped  educators  by  state 
departments  and  more  use  by  educational  institutions  of  the 
opportunities  and  materials  for  instruction  in  the  state  depart- 
ments are  greatly  needed. 

8.  Information  with  respect  to  the  humane  and  economic  dealing 
with  problems  of  dependency  and  delinquency  should  be  uni- 
versalized and  the  public  led  to  support  methods  which  promise 
reduction  in  the  number  of  feeble-minded,  insane  and  delinquent 
at  the  cost  even  of  traditions  based  upon  ignorance  and  short 
sighted  economic  policy. 

9.  The  tremendous  potential  value  to  industry  and  business  of  the 
state's  natural  resources  must  be  recognized  by  the  general  pub- 
lic and  by  the  state's  officers  as  never  before. 


Xll  JOINT     CO.NF  MITTEK    ON     ADMINISTRATIVE     REORGANIZATION 

It  is  a  pleasure  to  report  the  unstinted  co-operation  which  has  been 
given  to  this  committee  by  the  governor,  the  department  heads  and  em- 
ployes, university  and  normal  faculties,  numerous  civic  agencies,  indi- 
vidual citizens  and  editors.  Thanks  to  the  interest  shown  by  responsible 
officers  it  has  been  possible  to  secure  quickly  much  definite  information 
and  numerous  constructive  suggestions  taken  from  their  intimate  knowl- 
edge of  state  needs  and  their  profound  interest  in  furthering  the  aims 
of  the  General  Assembly  in  its  search  for  opportunities  to  improve  the 
quantity  and  quality  of  service  rendered  by  the  state  departments  through 
consolidation  or  other  reorganization  of  state  boards,  commissions  and 
departments. 

Ohio  will  be  particularly  grateful  for  helpful  suggestions  and  in- 
formation which  have  been  generously  sent  to  us  in  answer  to  our  ques- 
tions by  authorities  on  public  administration,  state  superintendents  of 
public  instruction  and  heads  of  normal  schools  and  universities  of  other 
states. 

In  making  the  field  studies  we  have  had  the  help  for  different  periods 
of  the  following  persons,  chosen  for  their  experience  as  field  inves- 
tigators in  other  states  and  cities :  Don  C.  Sowers,  Executive  Secre- 
tary, now  Director  of  the  Akron  Bureau  of  Municipal  Research ;  Gay- 
lord  C.  Cummin,  C.  E.,  former  city  manager  of  Jackson  and  Grand 
Rapids,  Michigan,  and  now  with  the  Institution  for  Public  Service, 
New  York  City ;  Lent  D.  Upson,  Director  of  the  Detroit  Governmental 
Research  aided  by  staff'  members.  Arch  Mandel,  C.  E.  Rightor,  Har- 
rington Place  and  by  Henry  Steffens,  Jr.,  Comptroller  of  Detroit  and 
William  H.  Allen.  Director  of  the  Institute  for  Public  Service,  New 
York  City. 

For  the  actuarial  work  in  connection  with  the  study  of  the  state  in- 
surance fund  the  committee  has  engaged  the  services  of  S.  H.  Wolfe, 
Consulting  Actuary  of  New  York.  Mr.  Wolfe  has  just  begun  his  in- 
vestigation and  no  facts  or  suggestions  in  this  report  have  resulted  from 
this  study. 

While  we  have  been  unable  even  to  digest  all  the  suggestions  that 
have  come,  we  are  prepared,  if  the  legislature  wishes,  to  make  a  few  con- 
structive suggestions  at  this  session,  or,  after  hearings,  to  make  a  com- 
prehensive report  early  in  the  new  year.  We  propose  a  joint  resolu- 
tion on  which  we  hope  the  legislature  will  take  favorable  action,  urging 
a  statewide  educational  campaign  in  the  interest  of  an  adequate  supply 
of  properly  prepared  teachers.  It  is  true  that  probably  no  other  legis- 
lature has  ever  made  such  an  appeal  as  we  hope  this  legislature  will 
make  for  a  popular  campaign  recruiting  ablest  young  men  and  women 
into  the  teaching  ranks  of  Ohio's  schools.  We  believe,  however,  that 
a  grave  emergency  is  here   and  that  the  legislative   representatives  of 


JOINT    COMMITTEE    ON    ADMINISTRATIVE    REORGANIZATION  Xlll 

the  people  should  take  prompt  cognizance  of  the  opportunity  that  is  in  the 
hands  of  the  people  themselves  to  meet  this  emergency. 

The  committee  is  prepared  to  submit  a  final  report  on  one  depart- 
ment within  a  few  days. 

F.  E.  Whittemore, 

Chairma/n. 
Howell  Wright, 

Vice-Chainruin. 
C.  C.  Crabbe, 

Secretary. 
Wallace  W.  Bellew, 
Robert  C.  Dunn, 
J.  E.  Foster. 
December.   1919. 

Resolution  Proposed  by  Committee. 
SENATE  JOINT  RESOLUTION. 

Mr.  Whittemore. 

Whereas,  The  growing,  shortage  of  teachers  threatens  a  condition 
at  an  early  date  where  hundreds,  perhaps  thousands  of  Ohio's  school 
classes  will  be  without  teachers  and  tens,  or  scores  of  thousands  of 
children  will  be  without  adequately  prepared  teachers ;  and 

Whereas,  The  menacing  shortage  of  teachers  is  due  to  contributing 
causes  of  which  too  low  salaries  are  but  one ;  and 

Whereas,  Public  discussion  of  higher  salaries  to  teachers  has 
directly  or  indirectly  disparaged  and  discredited  the  opportunities  and 
rewards  of  teaching  by  over-coloring  the  attractions  and  rewards  of  other 
occupations,  or  by  understating  the  rewards  and  opportunities  for 
advancement  that  are  offered  by  teaching ;  therefore 

Be  it  Resolved,  That  the  General  Assembly  commends  the  action 
of  state  superintendent  F.  B.  Pearson  in  appointing  a  committee  to  in- 
form and  organize  the  public  interest  of  the  state  in  placing  before 
children,  young  people  in  our  schools  and  colleges,  former  graduates 
and  married  women  equipped  for  teaching,  the  opportunities  for  patriotic 
service  which  teaching  ofifers  and  the  pecuniary  rewards  and  the  oppor- 
tunities for  advancement  in  school  fields  and  private  business  which 
follow  successful  teaching ;  and 

Be  it  Further  Resolved,  That  the  General  Assembly  request  the 
governor  of  the  state  by  proclamation  to  ask  that  all  forces  of  the  state 
join  in  this  educational  crusade  by  addresses  and  by  printed  advertise- 
ments which  will  help  recruit  the  ablest  young  men  and  young  women  of 
Ohio  as  teachers  in  our  public  schools. 


REPORTS 

OF 

EXECUTIVE   SECRETARY 

AND 

FIELD  INVESTIGATORS 


Ohio  Joint  Legislative  Committee  on 
Administrative  Reorganization 


FIELD  INVESTIGATORS 


DON  C.  SOWERS,  PH.  D. 

Dr.  Don  C.  Sowers  was  chosen  Executive  Secretary  of  the  Committee  on 
.Administrative  Reorganization.  Dr.  Sowers  has  had  seven  years  experience  in 
governmental  research  work.  After  graduation  from  Columbia  University,  Nev/ 
York,  he  was  connected  one  year  with  the  training  school  for  Public  Service 
conducted  by  the  New  York  Bureau  of  Municipal  Research.  For  the  next  three 
years  he  was  Director  of  Municipal  Research  work  in  the  cities  of  Oregon  and 
taught  civil  government  classes  in  the  University  of  that  state.  He  was  after- 
ward Assistant  Director  of  the  Dayton  Bureau  of  Municipal  Research.  For  the 
past  three  years  he  has  been  and  now  is  Director  of  the  Akron  Bureau  of 
Municipal  Research. 

WM.  H.  ALLEN,  PH.  D. 

Dr.  .-Mien  is  Director  of  the  Institute  for  Public  Service,  New  York  City. 
He  has  been  director  of  the  Rural  School  Survey  of  Wisconsin  and  of  the  Uni- 
versity of  Wisconsin  Survey;  Director  of  the  Build-As- You-Go  Budget  Survey  of 
the  state  of  Virginia;  surveyed  22  Denver  charities  for  the  Colorado  Taxpayers' 
League;  supervised  other  municipal  and  school  surveys  dealing  with  all  city 
departments  and  all  lines  of  educational  work.  Teacher,  author  and  lecturer, 
he  is  an  expert  of  nation-wide  reputation  on  educational  matters. 

L.  D.  UPSON,  PH.  D. 

Dr.  Upson  is  Director  of  the  Detroit  Bureau  of  Governmental  Research  and 
was  formerly  Director  of  the  Dayton  Bureau  of  Municipal  Research;  supervisor 
of  Training  School,  New  York  Bureau  of  Municipal  Research;  collaborator  in  the 
survey  of  the  State  of  Virginia;  lecturer  and  writer  on  Governmental  Research. 

GAYLORD  C.  CUMMIN,  C.  E. 
Mr.  Cummin  was  graduated  from  Cornell  University;  is  at  present  Con- 
sulting Engineer  with  the  Institute  for  Public  Service,  New  York  City.  He  has 
at  different  times  engaged  in  engineering  work  in  Idaho,  Washington,  Arkansas 
and  Texas;  was  City  Engineer  in  Dayton  during  the  1013  f^ood ;  was  later  City 
Manager  of  Jackson,  Michigan  and- Grand  Rapids,  Michigan;  Assistant  to  the 
President  of  Kelsey,  Brewer  &  Company  of  Grand  Rapids,  Michigan.  He  is  also 
associate  member  of  the  American  Society  of  Civil  Engineers  and  Past  President 
of  the  National   City  Managers  .Association. 

S.  H.  WOLFE. 
Colonel   S.   H.  Wolfe,  of   New   York   City,   was  employed   to   make  a   special 
investigation    of    the   administration    of    the    state    insurance    fund    under    the    in- 
dustrial commission.      Mr.  Wolfe  is  an  actuarial  expert  and  tlic  author  of  special 
articles   and   book  in   ihc  line   of  his   ])rc)fessinn. 

(2) 


REPORT  ON 

SUMMARY  OF  RECOMMENDATIONS 

By  DON  C.  SOWERS, 

Director,  Akron  Bureau  of  Municipal  Research 


Senator  F.  E.  Whittemore,  Chairman,  ^  >     y     • 

Joint  Legislative  Committee  on  Administrative  Reorganisation, 
State  House,  Columbus,  Ohio. 

Dear  Sir  : 

The  following  report  is  a  summary  of  the  recommendations  and 
suggestions  contained  in  the  detailed  reports  of  the  field  investigators. 
The  investigation  has  dealt  only  with  the  administrative  departments  of 
Ohio's  state  government  and  has  not  included  the  legislature  and  the 
judiciary. 

The  present  state  administrative  organization  consists  of  49  separate 
ofifices,  boards,  commissions  and  institutions ;  six  ex-ofificio  boards  which 
h^ve  administrative  duties  and  a  number  of  special  commissions.  The 
total  appropriation  for  these  governmental  units,  exclusive  of  the  legis- 
lature and  judiciary,  amounted  to  $i6,ooo,0(X)  for  the  year  ending  June 
30,  1920. 

The  administrative  departments  may  be  classified  as   follows : 

I.     Single  Elective  Officials. 


Governor. 

Lieutenant  Governor. 
Secretary  of  State. 
Attorney  General. 
Auditor. 
Treasurer. 


Single  Appointive  Officials. 
Appointed    by    Governor    zt'ithout 
Senate   confirmation. 


7. 

8. 

9. 

10. 


Adjutant  General. 
Budget   Commissioner. 
State  Geologist. 
Superintendent  of  Public  In- 
struction. 

a.  Board  of   School   Exam- 

iners. 

b.  Teacher  s'  Retirement 

Board. 
Commissioner   of    Securities. 
Superintendent    of    Public 
Works. 


Appointed  by  Governor  with  Set 
ate  confirmation. 


State  Highway  C  o  m  m  i  s  - 
sioner. 

Superintendent  of  Insurance. 

Inspector  of  Building  &  Loan 
Associations. 

Supervisor  of  Public  Print- 
ing. 

Commissioner  of  Soldiers' 
Claims. 

State  Fire  Marshal. 

Superintendent  of  Banks. 

State  Inspector  of  Oils. 


(3) 


4  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

Vil        Lo/.RPS    A>;C    Co  ADMISSIONS. 

Appointed    by    Governor    zvithout  Appointed  by  Governor  with  Sen- 

Senate  confirmation.  ate  confirmation. 

a.     Composed  of  two  members. 
21.     Board  of   Clemency.  22.     Civil    Service   Commission. 

b.     Composed  of  three  members. 

23.  Board  of  Accountancy.  27.     Industrial   Commission. 

24.  Blind  Commission.  28.     Library  Commission. 

25.  Board  of  Embalming  Exam-  2!).     Tax    Commission. 

iners.  30.     Public   Utilities  Commission. 

26.  State  Veterinary  Examiners. 

c.  Composed  of  four  members. 

31.     Highway  Advisory  Board.  32.     Board  of  Administration. 

d.  Composed  of  five  members. 

33.     State  Council  of  Health.  31.  Board  of  Dental  Examiners. 

35.  Board  of  Pharmacy. 

3'j.  Board  of  Optometry. 

37.  Board  of  Control,  O.  A.  E. 

Station. 

38.  Trustees     of     Soldiers'    and 

Sailors  Orphans'  Home. 

e.  Composed  of  seven  members. 

39.     Board  of  Education.  40.     State  Medical  Board. 

a.     Nurse   Registration    (3). 

f.  Composed  of  eight  members. 

41.  Board  of  State  Charities. 

g.  Composed  of  ten  members. 

42.  Board  of  Agriculture 

IV.     Educational  Institutions. 

Appointed    by    Governor    without  Appointed  by  Governor  with  Sen- 

Senate  confirmation.  ate  confirmation. 

43.  Ohio     State     University     (7 

trustees). 

44.  Ohio    University     (21    trus- 

tees). 

45.  Miami   University    (27   trus- 

tees). 

46.  Bowling    Green    Normal    (5 

trustees). 

47.  Kent  Normal  (5  trustees). 
V.     Institutions   and    Societies   Re- 
ceiving State  Aid. 

Appointed    by    Governor    xinthout  Appointed  by  Governor  -with  Sen- 

Senate    confirmation.  ate  confirmation. 

48.  Wilberforre    University. 

49.  Archjeological    &    Historical 

Society 


ADUIHISTRATIVS     ORGAMIZATIOB 
OF     OHIO      STATB     OOVBRBlffiNT 


Ohio 
Penitentiary 
Conimi88lon-6 


Trustees  of 
Archaeo  lo  fjlcal 
and  Historical 

Society 
6   and  Governor 

ex-offlclo 


State 

Veterinary 

Exaniiners-3 


All  officials,  boards  and  icommlBDionB  on  right  of  chart  are  appointed 
with  the  advice  and  consent  of  the  Senate;  those  on  left  side  of  chart, 
without  ouch  confirmation. 


Appointive  Boards  and  Com- 
mlBoions.  Figure  indlo»teB 
number  of  members , 


iblio 

litles 
:lsBion-S 


Board  ot     4 

Administration 


,_L 


[urses     -     3 
legiBtration 


Library   -  3 

CommissionetB 


(LegislativeN 
Reference  I 
Librarian^ 


Tax 
CommlBBion. 


Board  of 

Agriculture 


Board  of 
Control 
0.  A.  B. 

Station-  6 


Board  of 
Pharmacy   5 


n 


Board  of 
Optometry 


[Btees  of 
:j  state 
■araity-  7 


Trustees  of 

Ohio 

University-Sl 


Trustees  of 
Ikiaml 
Univer8ity-27 


Trustees  of 
Bowling  Green 
Normal   -  5 


[  ateee  of 
Cent 
nnal-5 


Trustees  of 
Wilberforce 
University 


Trustees  of 
Soldiers;  and  Sailors 
Orphan's  Home   -   5 


BoEtrd  of 
Director's 
of  Longview 
Asylum 


ON    ADMINISTRATIVE   REORGANIZATION 


VI.     Ex-Officio  Boards. 

1.  Commissioners    of    Public 

Printing 

2.  Board  of  Control 

3.  Emergenc}'   Board 

4.  Commissioners  of    Sinking 

Fund 

■^       State   Building   Commission 
6.      Sundry   Claims   Board 


—  Composed  of  Sec'y  of  State,  Auditor 

and  Attorney  General. 

—  Composed  of  5  ex-ofp.cio  members. 

—  Composed  of  5  ex-officio  members. 

—  Composed  of  Sec'y  of  State,  Auditor 

and  Attorney  General. 

—  Composed  of  Governor,  Sec'y  of  State 

and  Auditor. 

—  Composed  of  3  ex-officio  members  and 

Auditor  of  State  as  Secretary. 


VII.     Special  Commissions. 

1.     Ohio  Penitentiary  Commis- 
sion 

£.  Ohio  State  Normal  School 
Commission 

3.  Executive   Mansion    Board 

4.  Board     of     Uniform     State 

Laws 

5.  Fort  Meigs  Commission 

G.  Select  Site  for  Institution 
for  Deformed  and  Crippled 
Children 

7.  To  Purchase  Land  and  Erect 

Buildings  for  Above 

8.  Women  Visitors  for  Benevo- 

lent, Correctional  and  Pe- 
nal Institutions 


■  Composed  of  5  members. 

5  members. 
3  members. 

3  members. 
5  members. 


3  members  and  Governor  and  Auditor 

ex-officio  members. 
3  members. 


This  information  is  shown  graphically  on  the  foregoing  chart 


6  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  state's  business  is  conducted  by  a  number  of  different  types  of 
organization;  single  headed  departments,  boards  and  commissions  vary- 
ing in  size  from  two  to  ten  members.  Some  of  the  department  heads 
and  the  members  of  boards  are  appointed  by  the  governor  with  the 
advice  and  consent  of  the  senate  and  some  without.  The  reason  for 
senate  confirmation  in  some  cases  and  not  in  others  is  not  clear. 

PRINCIPLES  GOVERNING  REORGANIZATION. 
In  formulating  the  plan  for  reorganizing  the  state  government,  the 
following  principles  have  been  followed : 

1  —  The  governor,  who  is  elected  by  the  people,  would  be  the  re- 
sponsible head  of  the  state  government  and  would  possess  power  and 
authority  commensurate  with  his  responsibility.  The  term  of  the  gov- 
ernor would  be  extended  from  two  to  four  years  and  all  department 
heads  would  have  the  same  term  as  governor  except  members  of 
boards  with  overlapping  terms. 

2  _  The  auditor,  who  is  also  elected  by  the  people,  would  constitute 
a  continuing  check  upon  the  work  of  the  Governor  and  his  subordinates. 
The  investigations  of  the  auditor  would  include  not  only  financial  audits, 
but  criticisms  of  operation  and  results. 

3  —  Departments  and  boards  performing  work  of  a  similar  or  re- 
lated character  would  be  grouped  together  into  a  major  department;  the 
various  functions  would  constitute  bureaus  or  divisions  operated  under 
an  accountable  chief  who  would  report  to  the  head  of  the  department. 
The  department  head  would  be  directly  responsible  to  the  governor. 

4  _  Departments  having  to  do  largely  with  matters  of  policy  would 
be  controlled  by  boards  In  order  to  insure  the  application  of  group  judg- 
ment. Boards  would  be  retained  for  the  health  department,  industrial 
commission,  public  utilities  commission,  department  of  education  and 
state  board  of  welfare. 

The  following  methods  are  outlined  for  making  the  governor  the 
responsible  head  of  the  state  government  in  fact  as  well  as  in  name  • 

1  _  All  department  heads  would  be  appointed  by  the  governor  and 
be  directly  responsible  to  him  without  the  confirmation  of  the  senate. 
This  involves  an  amendment  to  the  constitution  permitting  the  appoint- 
ment of  the  secretary  of  state,  attorney  general  and  treasurer  by  the 
governor. 

2  —  A  reduction  in  the  number  of  independent  departments,  offices, 
boards  and  commissions  is  recommended.  The  number  of  elective  offices 
would  be  reduced  from  six  to  three  and  the  activities  now  performed  by 
thirty-six  independent  boards  and  commissions  would  be  combined  into 
thirteen  major  departments.  The  governor  would  be  relieved  of  the 
necessity  of  supervising  and  coordinating  the  work  of  thirty-six  depart- 
ments.    Staff  meetings  of  department  heads  would  become  possible  ard 


state  of  Ohio 

ATMINISTBATIVE  KEOKGANIZATIOM 

Proposed  to 

Joint  Legislative  x:oiiiniltt«« 

April,    1920 


DEPARTlilENT  OP  STATB 


Secretary  of  State 


COUNCIL  OF  HEaLTH-5 


CommiBBioner 


Dlvleion  of.  ...... 

Administration 
Division  of .  .' 

Engineering 
Division  of 

Tuberculosis 
Division  of  Public 
'  Health  Nursing 
Division  of 

Laboratories 
Division  of 

Communicable. . . . 

Diseases 
Division  of. 

Industrial  Hygiene 
Division  of  Child... 

Hygiene 
Division  of  Vital. 

StatisticB 
Division  of  Hotel. 

Inspection 
Division  of  Food  and 

Dairy  Inspection 


DEPARTltKNT 
OF  MILITARY  AFFAIRS 


Adjutant  General 


DKPARTMBNT  OF  LAW 


Attorney  General 


Commissioner  of 
Soldiers'  Clalma 


Chief  Administrator 


Bureau  of  Workmen' a 

Compensation 
Claim  Division 
Auditing  Division 
Actuarial  Division 
Bureau  of 

Inspection 
Division  of. 

Workshops ........ 

Factories,  and... 

Public  Buildings. 
Division  of  Boilers 
Division  of  Mines 
Division  of  Fire. . . 

Prevention 
Bureau  of 

Statistics  and.. . 

Investigation 
Bureau  of 

Employment 

Mediation  and 

Arbitration 


Ae. Now  Organised 


1 

Boards   For   ! 
Educational   : 

OHIO    STA1 
UNIVKRJ 

AGRICU: 

Expa 

STAT 

OHIO   UNI' 

|>UIA1U    UN 

BOWLING  i 
NORMAL 

KENT   NOR 

WILBERPO 
AND    I 
DEPA 

DBPARTMSNT  OF  TRADE 
AHD  CaMUBRCB 


Director 


Bureau  of 

CorporatlOJiB 
Bureau  of  Inauranoe 
Bureau  of  Banks 
Bureau  of  Building. 

and  Loan 

Association 

Bureau  of  Standards 
Oil  Inspector 


DEPARTMENT  OP 
PUBLIC  TORK3 


Director 


Bureau' of  Highways 
Bureau  of  Lands,... 

Parks,  etc 
Bureau  of  Public... 

Buildings 
State  Geologist 


Director 

Bureau  State  Fair 
Bureau  Fish  and. 

Game 
Bureau  of  Animal 

Industry 
Bureau  of  Feeds  and 

ertilizers 
Bureau  of 

Horticulture 
Bureau  of  Markets 


^^- 


Higher 
itutions 

:-7 

AL ....    . . 

iNT 

lTY-7    ■ 

;siTY-7 

iM...:.. 

1 

•5 

NORMAL 
3TRIAL 
SKT 

Director 


Superintendent  of.. 
Public .. 

Instruction 
Common  Schools 
Vocational  Schools 
County  Normal 

Schools 
Bureau  of 

Examination  ajid. . 

Registration 
Library 

Art   Commission 
Americanization. . . . 

Commission 
Educational  Council 


DEPARTlffiNT 

OF  WELFARE 

ADMINISTRATION 


TRUSTKES  OF 

ARCHEO  LOGICAL 

AND  HISTORICAL 

SOCIETY-e 


Director 


Bureau  of 

Administration 
Bureau  of  Support 
Bureau  of 

Children's 

Welfare 
Bureau  of  the  Blind 
Soldiers'  and 

Sailors'  Home  at 

Xenia 


Girls'  Industrial.. 

School 
Boys'  Industrial. . . 

School 
Kens  Reformatory... 
Women's  Reformatory 
Penitentiary. .. . . 
School  for  Deaf. . 
School  for  Blind. 


ON    ADMINISTRATIVE    REORGANIZATION  7 

by  this  method,  he  could  obtain  a  bird's-eye  view  of  all  of  the  state's 
activities. 

Considerations  of  expediency  have  been  a  negligible  factor  in  the 
formulation  of  the  following  recommendations.  The  controlling  thought 
has  been  to  devise  the  best  possible  plan  of  state  reorganization  after 
careful  consideration  of  all  the  available  facts  bearing  upon  the  problem. 
Hundreds  of  letters  were  written  to  former  state  officials,  present  state 
officials,  civic,  professional,  social  and  business  organizations  and  inter- 
ested citizens  for  the  purpose  of  securing  ideas  and  facts.  Conferences 
were  held  with  individuals,  state  officials  and  a  few  public  hearings  were 
conducted  for  the  purpose  of  securing  additional  information.  In  addi- 
tion to  the  ideas  and  suggestions  which  were  received  from  citizens  of 
Ohio,  a  large  amount  of  valuable  information  was  obtained  from  persons 
of  wide  experience  in  governmental  affairs  in  other  states. 

The  preceding  chart  shows  in  graphic  form  the  proposed  reorganiza- 
tion plan  and  the  following  pages  give  in  summary  form  a  description 
of  the  plan  together  with  the  reasons  for  the  grouping  and  coordination 
of  the  various  departments. 

Respectfully  submitted, 

Don  C.   Sowers, 
Executive  Secretary. 


Summary  of  Recommendations  for  the  Reorganiza- 
tion of  State  Government 


The  organization  of  the  administrative  activities  of  the  state  gov- 
ernment into  the  following  departments  is  recommended : 

1.  Office  of  governor. 

2.  Lieutenant  governor. 

3.  Office  of  auditor. 

4.  Department  of  state. 

5.  Department  of  military  affairs. 

6.  Department  of  law. 

7. .   Department  of  finance. 

8.  Department  of  trade  and  commerce. 

9.  Department  of  public  works. 

10.  Department  of  agriculture. 

11.  Department  of  health. 

12.  Industrial  commission. 

13.  Public  utilities  commission. 

14.  Department  of  education. 

15.  Department  of  welfare  administration. 

16.  State  board  of  welfare. 

17.  Civil   service   commissioner. 

In  addition  the  following  educational  and  research  agencies  would 
be  continued  as  organized  at  present. 

Ohio  state  university. 

Ohio   university. 

Miami  university. 

Bowling  Green  normal  college. 

Kent  normal  college. 

Wilberforce  combined  normal  and   industrial   department. 

.Archaeological  and  historical  society. 

OFFICE  OF  GOVERNOR. 

The  ])lan  proposes  to  extend  the  "supreme  executive  power  of  the 
state"  to  he  vested  in  the  governor,  as  contemplaed  by  the  state  consti- 
tution.    (Art.  III.    Sec.  5.) 

The  governor  is  to  have  the  power  to  choose  the  heads  of  depart- 
ments, who  will  constitute  his  cabinet  and  who  will  serve  at  his  pleasure. 

(8) 


ON    ADMINISTRATIVE   REORGANIZATION  9 

In  this  way  direct  responsibility  for  administration  will  rest  with 
the  governor.  Citizens  will  know  whom  to  hold  accountable  and  on 
the  other  hand  the  governor  will  possess  the  power  to  exercise  control 
over  all  administrative  departments  through  his  power  of  appointment 
and  removal.  The  position  of  the  governor  will  be  similar  to  that  of 
ihe  president  of  the  United  States,  and  clearly  in  line  with  the  position 
which  the  Ohio  constitution  gives  to  the  governor. 

The  governor  would  be  elected  for  a  term  of  four  years  instead 
of  for  two  years  as  at  present.  Two  years  is  too  short  a  time  for  the 
governor  to  become  familiar  with  the  duties  of  his  office  and  to  im- 
prove the  organization  necessary  for  accomplishing  results. 

Investigators  would  be  attached  to  his  office  to  advise  and 
report  to  him  on  methods,  organization  and  other  problems  con- 
nected with  state  activities,  in  order  that  he  would  have  the  neces- 
sary machinery  for  adequate  and  effective  supervision  of  all  depart- 
ments. The  details  of  this  internal  organization  may  be  left  to  the 
governor.  The  governor  now  possesses  three  such  agencies,  viz.  his 
secretary  and  staff,  the  budget  commissioner  and  the  board  of  clem- 
ency. Each  of  these  should  be  retained  as  organized  at  present.  The 
investigations  herein  mentioned  as  essential  might  be  performed  by  en- 
larging the  staff  of  the  budget  commissioner. 

There  is  need  of  carefully  supervising  the  publication  of  the  annual 
and  special  reports  of  the  state  departments,  to  the  end  that  informa- 
tion which  is  unessentail  may  be  eliminated  and  information  which  is 
desirable  may  be  published  in  an  intelligent  and  readable  form.  This 
work  should  be  done  under  the  governor's  supervision  either  in  the  office 
of  the  governor  or  if  the  secretary  of  state  is  appointed  by  the  governor, 
as  recommended  in  this  report,  it  might  be  done  by  the  bureau  of  records 
of  the  department  of  state. 

A  constitutional  amendment  will  be  required  to  lengthen  the  term 
of  governor  from  two  to  four  years. 

All  other  recommendations  will  require  no  statutory  changes  and 
can  be  effected  by  administrative  order. 

LIEUTENANT  GOVERNOR. 

The  lieutenant  governor  is  a  constitutional  officer  elected  for  a  term 
of  two  years.  He  is  the  presiding  officer  of  the  senate  and  in  case  of 
a  vacancy  succeeds  as  governor. 

The  term  of  lieutenant  governor  should  be  for  the  same  period  as 
that  of  the  other  elective  officers,  governor  and  auditor,  which  under 
the  proposed  scheme  of  reorganization  will  both  be  four  years. 

A  constitutional  amendment  will  be  required  to  lengthen  the  term 
of  lieutenant  governor  from  two  to  four  years. 


10  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

OFFICE  OF  AUDITOR. 

The  auditor  of  state  is  a  constitutional  officer  elected  for  a  term 
of  four  years. 

Statutory  changes  are  recommended  limiting  the  functions  of 
the  auditor  to  those  of  an  auditing  nature,  transferring  to  a  new 
department,  the  department  of  finance,  all  those  finsmcisd  functions 
which  have  to  do  with  planning  and  spending  emd  specifying  that  the 
auditor  shall  make  operation  as  well  as  financial  audits. 

At  present  the  auditor  not  only  audits  all  financial  accounts,  but 
handles  the  routine  administrative  functions  concerned  with  accounting, 
collection  of  revenues,  expenditures,  property  control  and  other  financial 
transactions.  No  distinction  now  exists  between  the  function  of  auditing 
and  the  function  of  bookkeeping  and  accounting.  The  auditor  is  in  the 
position  of  auditing  his  own  work,  which  of  course  tends  to  destroy  the 
disinterestedness  of  his  audit.  The  routine  administrative  duties  divert 
the  energy  of  the  auditor  and  his  statT  from  the  much  needed  study  and 
investigation  of  operation  results. 

It  is  recommended  that  the  auditor  should  be  charged  only  with 
the  auditing  function  and  that  he  be  continued  to  be  elected  by  the 
people  so  that  he  may  be  independent  of  the  whole  executive  govern- 
ment and  be  free  to  criticise  its  performances  when  necessary.  In 
addition  to  auditing  the  financial  records  with  respect  to  accuracy  and 
legality,  he  should  be  charged  with  the  duty  of  ascertaining  the  wisdom, 
economy  and  effectiveness  of  expenditures ;  in  other  words,  there  is  need 
for  a  continuous  independent,  analytical  study  of  operations  and  re- 
sults accomplished  by  the  executive  government.  Provision  should  be 
made  by  law  for  publication  of  the  findings  of  the  auditor  so  that  these 
wou'd  be  available  to  the  general  assembly,  the  governor  and  citizens. 
The  following  functions  now  performed  by  the  auditor  would  be  re- 
tained : 

Audit  of  state  departments. 

Bureau  of  inspection  and  supervision  of  public  offices. 

All  otiicr  functions  now  performed  by  the  auditor  would  be  trans- 
ferred to  otlier  departments  as   follows: 

Accounting  control  over  revenues  and  expenditures  would  be 
transferred  to  the  proposed  department  of  finance. 

Devising  and  installing  accounting  systems  would  be  transferred 
to  the  department  of  finance. 

Supervision  of  school  and  ministerial  lands  would  be  transferred 
to  the  department  of  public  works.  The  compilation  of 
complete  records  showing  the  location  of  all  school  lands  through 
surveys  and  examination  of  local  records  and  the  lease  or  sale 
of  such  lands  properly  belongs  to  the  bureau  of  state  lands, 
canals  and  parks,  which  is  to  be  a  part  of  the  department  of 
public  works. 


ON    ADMINISTRATIVE    REORGANIZATION  I  I 

Custody  of  land  records  would  be  transferred  to  the  department 
of  state.  The  custody  of  land  records  is  mainly  a  matter 
of  preservation  of  records,  rather  than  of  finance. 

Bonds  of  transportation  agents  would  be  transferred  to  the  de- 
partments of  trade  and  commerce.  Agents  selling  steamship 
or  railroad  tickets  to  and  from  foreign  countries  must  receive 
certificates  of  authority  and  deposit  bonds.  This  activity  is  a 
matter  of  regulating  a  business  and  not  primarily  a  financial 
activity. 

Supervision  of  highway  accounting  would  be  transferred  to  the 
proposed  department  of  finemce.  It  is  a  part  of  the  duties 
of  the  proposed  department  of  finance  to  devise  and  install 
accounting  records  in  all  departments  and  to  supervise  and 
control  all  financial  transactions. 

Statutory  changes  only  are  required  to  carry  these  recommendations 
into  eiTect. 

DEPARTMENT  OF  STATE. 

The  head  of  the  proposed  department  of  state  will  be  the  secretary 
of  state  appointed  by  the  governor  and  serving  at  his  pleasure. 

The  functions  that  logically  belong  to  a  department  of  state  are 
the  custody  of  the  state  archives  and  supervision  and  enforcement  of 
election  laws.  For  the'  performance  of  these  duties  a  bureau  of  records 
and  a  bureau  of  elections  is  recommended. 

BUREAU  OF  RECORDS. 

This  bureau  would  have  the  custody  of  all  state  do:uments  and 
laws  and  all  state  papers  and  records,  including  the  land  records,  which 
would  be  transferred  from  the  office  of  auditor.  It  would  be  the  center 
of  distribution  for  all  public  documents  issued  by  the  various  departments. 
Its  duties  might  include  the  editing  of  departmental  reports  and  publica- 
tions or  this  w^ork  might  be  handled  by  a  bureau  of  records  and  publica- 
tions in  the  ofBce  of  the  governor.  The  important  point  is  that  the  gov- 
ernor, as  the  responsible  head  of  the  state  organization,  should  possess 
the  machinery  to  supervise  and  criticise  all  the  reports  and  publications 
dealing  with  the  administration  of  public  business.  If  the  secretary  of 
state  is  appointed  by  the  governor  he  might  be  charged  with  these  duties. 

The  duties  of  this  department  as  herein  outlined  consist  of  purely 
routine  administrative  activities ;  the  department  would  not  be  con- 
cerned with  the  formulation  of  public  policies  and  hence  there  would  be 
no  logical  reason  for  the  election  of  the  head  of  this  department  bv  the 
people.  Appointment  by  the  governor  would  eliminate  the  possibliity 
of  friction  which  so  often  arises  between  two  separate,  independent 
elective  officials. 


12  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  strongest  objection  which  has  been  urged  against  the  appoint- 
ment by  the  governor  of  the  secretary  of  state  is  that  the  control  of 
the  election  machinery  would  thereby  fall  into  the  hands  of  the  governor. 
\\1ien  it  is  recalled  that  at  the  present  time  the  secretary  of  state  merely 
appoints  deputy  state  supervisors  of  election,  upon  the  recommenda- 
tions of  the  executive  committees  of  the  two  leading  political  parties, 
this  objection  loses  much  of  its  force.  In  New  York  State  the  state 
superintendent  of  elections  is  appointed  by  the  governor.  The  auditor 
would  have  the  authority  and  duty  to  audit  methods  and  results. 

All  the  other  functions  now  carried  on  by  the  department  of  state 
would  be  transferred  to  other  departments. 

BUREAU  OF  VITAL  STATISTICS. 

The  bureau  of  vital  statistics  would  be  transferred  to  the  department 
of  health. 

Vital  statistics  belong  in  the  health  department  where  there  is  con- 
stant need  for  them.  The  most  important  purpose  which  justifies  the 
expense  involved  in  collecting  this  information  is  to  help  the  state  study 
its  health  problems,  learn  where  forces  are  at  work  which  menace  the 
health  and  life  of  its  citizens  and  enable  its  health  engineers  and  other 
serial  engineers  to  take  steps  for  increasing  human  vitality.  The  secre- 
tary of  state  has  no  administrative  uses  for  this  information  whereas  the 
department  of  health  should  constantly  study  and  analyze  this  informa- 
tion. 

BUREAU    OF     MOTOR    VEHICLE    LICENSES. 

The  bureau  of  motor  vehicle  licenses  would  be  transferred  to  the 
department  of  finance. 

It  would  seem  logical  to  place  the  issuance  of  automobile  licenses 
in  the  finance  department.  The  activity  is  primarily  one  of  producing 
an  income  for  the  state.  The  work  is  also  seasonal  in  character,  re- 
quiring a  large  number  of  employes  at  certain  times  who  are  either 
idle  a  portion  of  the  year  or  must  be  discharged.  This  condition  might 
be  corrected  if  this  division  were  included  in  a  department  where  the 
idle  time  could  be  used. 

STATE    PURCHASING    DEPARTMENT. 

The  state  purchasing  department  would  be  transferred  to  the  de- 
partment of  finance. 

The  function  of  purchasing  all  commodities  used  by  the  state  can 
most  satisfactorily  be  undertaken  from  the  point  of  view  both  of  economy 
and  service  by  a  single  purchasing  department.  Large  economies  can 
be  effected  through  quantity  buying  where  all  purchases  are  made  through 
one  agency.  It  seems  logical  to  place  this  function  in  the  department  of 
finance,  since  the  purchase  orders  and  requisitions  are  the  first  steps 
in   the   expenditure   of   public   funds   for    supplies   and   equipment   and 


ON   ADMINISTRATIVE   REORGANIZATION  I3 

therefore  it  sustains  a  very  intimate  relation  to  the  other  activities  of  this 
department. 

BUREAU  OF   CORPORATIONS. 

The  bureau  of  corporations  would  be  transferred  to  the  proposed 
department  of  trade  and  commerce. 

The  responsibility  of  the  secretary  of  state  ceases  with  the  granting 
of  certificates  of  incorporation.  However,  before  a  corporation  for 
profit  is  allowed  to  operate  or  sell  its  securities,  its  financial  ability 
must  be  investigated  and  approved  by  the  commissioner  of  securities. 
The  advantages  of  combining  in  one  agency  the  investigation  and  grant- 
ing of  certificates  of  incorporation  are  obvious.  Such  consolidation  of 
function  would  simplify  the  procedure  of  organizing  new  corporations 
and  would  enable  the  state  to  obtain  a  complete  record  of  the  history 
and  operation  of  corporations.  Those  engaged  in  supervising  are  the 
best  judges  of  the  desirability  and  propriety  of  granting  authority  to 
solicit  stock  subscriptions  to  a  new  group  of  promoters.  The  reason 
for  placing  the  bureau  of  corporations  in  the  department  of  trade  and 
commerce  is  the  desire  to  place  the  supervision  and  regulation  of  all 
corporations  in  one  department.  Such  a  combination  would  give  better 
service  to  the  public  and  would  be  of  advantage  economically.  At  the 
present  time  the  several  regulatory  services  are  located  in  different 
buildings  in  Columbus  and  this  leads  to  loss  of  time  and  effort  on  the  part 
of  citizens.  (For  further  discussion  see  under  Dept.  of  Trade  and 
Commerce.) 

Constitutional  changes. 

A  constitutional  amendment  will  be  required  to  change  the  secretary 
of  state  from  an  elective  official  to  an  appointive  one.  All  the  other 
changes  can  be  effected  by  legislation. 

DEPARTMENT  OF  MILITARY  AFFAIRS. 

The  governor  is  commander-in-chief  of  the  military  and  naval 
forces.  He  appoints  an  adjutant  general  and  such  other  staff  officers  as 
may  be  provided  by  law. 

A  department  of  military  aiffairs  is  recommended  with  the  adjutant 
general  as  the  administrative  head  appointed  as  at  present  to  have  com- 
plete charge  of  the  military  affairs  of  the  state,  under  the  supervision 
of  the  governor. 

The  functions  performed  by  the  commissioner  of  soldiers'  claims 
naturally  belong  in  this  department  and  it  is  recommended  that  the 
commissioner  be  appointed  by  the  adjutant  general.  This  office  is  con 
cerned  with  giving  aid  and  assistance  to  soldiers  and  sailors  and  their 
heirs,  in  perfecting  claims  for  pension,  back  pay  and  bounties,  in  securing 
admission  for  them  to  state  and  national  military  homes  and  in  other 
ways. 


14  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

All  non-military  functions  now  performed  by  the  adjutant  general 
should  be  placed  elsewhere.  As  a  matter  of  principle  the  department  of 
military  affairs  should  be  charged  with  only  military  duties  so  that 
prompt  and  vigorous  action  may  be  taken  in  case  an  emergency  should 
demand  the  call  of  the  national  guard  into  service. 

The  function  of  superintendence  of  buildings  and  grounds  would 
be  removed  and  attached  to  the  proposed  department  of  public  works. 
The  strongest  argument  for  this  change  is  the  present  condition  of  the 
state  house.  As  a  matter  of  fact  the  department  under  its  present  control 
does  not  function. 

These  recommendations  require  only  statutory  changes. 

DEPARTMENT  OF  LAW. 
The  attorney  general  is  a  constitutional  officer  elected  by  the  people 
for  a  term  of  two  years.     The  duties  of  the  attorney  general  are  defined 
by  statute  and  may  be  summarized  as  follows : 

He  is  the  chief  law  officer  for  the  state  and  all  its  departments  and 
is  required  to  prosecute  and  defend  all  actions  or  proceedings 
in  which  the  state  is  interested.  He  gives  legal  advice  to  state 
officers  and  boards  and  to  either  house  of  the  general  assembly 
when  so  requested  by  resolution.  He  is  the  codifier  of  the 
laws  of  the  state.  He  advises  the  prosecuting  attorneys  of 
the  several  counties  when  requested  by  them.  He  prepares 
forms  of  contract  and  has  certain  duties  to  perform  in  con- 
nection with  the  collection  of  moneys  due  the  state  and  state 
institutions. 

One  point  which  has  aroused  some  discussion  among  students  of 
government  is  that  of  the  relation  of  the  attorney  general  to  the  legal  staffs 
of  other  departments.  This  question  is  not  an  important  one  in  Ohio 
because  both  in  law  and  in  fact  all  the  legal  counsel  employed  in  the 
several  departments  are  under  the  supervision  and  control  of  the  at- 
torney general.  The  law  provides  that  no  state  officer,  board,  or  the  head 
of  a  department  or  institution  of  the  state  shall  employ,  or  be  represented 
by  other  counsel  or  attorneys-at-law.  The  trend  of  judicial  opinion  in 
other  states  where  the  question  has  been  raised  is  in  accord  with  the 
present  situation  in  Ohio.  It  has  come  to  be  generally  recognized  that 
all  the  legal  work  of  the  state  should  be  centralized  under  the  attorney 
general.  It  is  obvious  that  if  the  whole  time  of  some  attorney  is  needed 
by  some  departments,  the  attorney  general  will  assign  special  attorneys 
to  these  departments  on  full  time. 

With  the  attorney  general  elected  by  the  people  and  thus  independent 
of  the  governor  there  exists  a  condition  which  might  develop  to  seriously 
limit  the  effective  authority  of  the  governor  as  the  chief  executive  of 
the  state.    If  the  elected  attorney  general  were  of  opposite  politicaljfaith 


ON    ADMINISTRATIVE   REORGANIZATION  15 

to  the  governor,  the  situation  might  become  embarrassing.  In  govern- 
mental activities  executive  officials  are  circumscribed  in  their  work  by 
a  mass  of  legal  requirements  and  technicalities  and  if  results  are  to  be 
secured  it  is  necessary  that  the  executive  officer  be  guided  through  this 
maze  of  legal  restrictions  by  competent  and  sympathetic  legal  counsel. 
If  one  course  of  action  is  blocked  by  legal  restriction,  then  some  other 
way  must  be  found  to  accomplish  the  desired  results. 

The  danger  that  the  attorney  general  might  make  rulings  and  de- 
cisions to  suit  the  wishes  of  the  governor  who  appoints  him  is  more 
theoretical  than  real.  To  maintain  this  attitude  w^ould  be  to  malign  the 
legal  profession. 

Furthermore,  the  plan  of  appointment  by  the  executive  works  satis- 
factorily in  the  United  States  department  of  Justice,  in  cities,  and  it  is  in 
operation  in  a  few  states.  The  attorney  general  is  head  of  the  depart- 
ment of  justice  and  chief  law  officer  of  the  national  government.  He  is 
appointed  by  the  president  and  has  similar  duties  to  the  attorney  general 
of  the  state.  In  both  Pennsylvania  and  New  Jersey  the  attorney  general 
is  appointed  by  the  governor. 

It  is  recommended  that  the  attorney  general  of  Ohio  be  appointed 
by  the  governor  and  serve  at  his  pleasure. 

A  constitutional  amendment  will  be  required  to  make  the  attorney 
general  an  appointive  officer  under  the  governor. 

DEPARTMENT  OF  FINANCE. 

A  new  department  is  proposed  to  be  called  the  "department  of 
finance."  The  head  of  this  department  would  be  the  director  of  finance, 
who  would  be  appointed  by  the  governor  and  serve  at  his  pleasure. 

All  the  administrative  financial  affairs  of  the  state  now  performed 
by  several  different  offices  and  boards  would  be  coordinated  and  central- 
ized in  this  department.  The  department  would  have  the  management 
and  control  of  the  levy,  assessment,  collection,  disbursement  and 
custody  of  state  funds,  the  purchase  and  storage  of  supplies  and  equip- 
ment and  the  maintenance  of  financial  records.  The  head  of  the  depart- 
ment would  be  the  financial  advisor  to  the  governor  on  all  matters  of  state 
finance.  The  following  functions  would  be  transferred  from  other  de- 
partments : 

Bureau  of  accounting  transferred   from  the  office  of  auditor. 
Bureau  of  income  and  taxation  transferred  from  the  office  of  auditor, 

tax  commission  and   superintendent  of   insurance. 
Bureau  of  motor  vehicle  licenses  transferred  from  the  secretary  of 

state. 
Bureau  of  treasury  transferred  from  the  office  of  state  treasurer. 
Bureau  of  purchasing  transferred   from  the  office  of   secretary  of 

state. 


l6  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

BUREAU  OF  ACCOUNTING. 

The  work  of  this  bureau  would  include  the  bookkeeping-  work  of  the 
state  government  now  performed  by  the  auditor  together  with  the  task  of 
devising  and  instalHng  improved  methods  of  financial  control  throughout 
all  state  departments. 

BUREAU  OF  INCOME  AND  TAXATION. 

The  work  of  this  bureau  would  include  the  accrual  of  revenues, 
assessing  and  levying  taxes  on  corporations,  insurance  companies  and 
banks;  supervising  the  assessment  and  equalization  of  general  property 
valuation;  determining  franchise  valuation  and  the  issuance  of  licenses, 
and  the  collection  of  fees  upon  the  recommendation  of  departments  con- 
cerned except  motor  vehicle  licenses.  This  bureau  would  assume  the 
duties  now  performed  by  the  tax  commission. 

For  the  purpose  of  equalizing  the  assessment  of  the  several  counties 
and  performing  the  other  quasi  judicial  functions  now  performed  by  the 
tax  commission  a  board  of  equalization  would  be  created  consisting  of 
the  director  of  finance,  attorney  general  and  director  of  trade  and  com- 
merce. 

BUREAU  OF  MOTOR  VEHICLE  LICENSES. 

This  bureau  would  perform  the  activities  of  the  division  of  auto- 
mobiles in  the  office  of  the  secretary  of  state.  The  chief  reason  for  this 
transfer  is  the  centralization  of  purely  financial  transactions  in  one  de- 
partment. The  motor  vehicle  bureau  is  primarily  a  revenue  producing 
agency  and  is  only  secondarily  concerned  with  the  regulation  of  motor 
vehicle  trafific. 

BUREAU    OF    TREASURY. 

.This  bureau  would  perform  all  the  functions  of  the  present  state 
treasurer's  ofifice.  The  collection,  disbursement  and  custody  of  state 
and  trust  funds  is  but  one  of  the  several  steps  in  the  process  of  state 
finance  and  the  work  would  be  placed  on  the  same  plane  and  handled 
in  a  manner  similar  to  the  coordinate  steps.  The  continuous  check  by 
an  independent  auditor  should  be  sufificient  safeguard  against  loss  of 
funds  without  resorting  to  the  expediency  of  establishing  a  separate  de- 
partment of  the  treasury. 

BUREAU  OF  PURCHASING. 

This  bureau  would  purchase  and  distribute  the  printing,  supplies, 
materials  and  equipment  for  the  several  departments  and  institutions  in- 
cluding the  purchasing  now  done  by  the  board  of  administration,  highway 
department  and  universities.  In  the  few  instances  where  it  might  be 
found  impractical  to  do  the  purchasing  by  the  purchasing  agent  specific 
releases  could  be  issued.  Central  purchasing  control  should  result  in 
both  economy  and  improved  service.     Several  states,  notably  New  Jersey 


ON   ADMINISTRATIVE   REORGANIZATION  1/ 

and  Wisconsin,  have  centralized  purchasing  systems.  The  duties  of  the 
supervisor  of  state  printing  and  the  state  printing  commission  would  be 
absorbed  by  this  bureau. 

CONSTITUTIONAL    CHANGES. 

The  state  treasurer,  who  is  an  elective  officer  under  the  constitution 
would  have  to  be  made  an  appointive  officer  under  the  director  of  finance. 

STATUTORY  CHANGES. 

Only  statutory  changes  would  be  required  to  abolish  the  supervisor 
of  printing,  the  printing  commission,  the  tax  commission  and  to  transfer 
the  functions  now  performed  by  other  departments  to  the  department 
of  finance. 

DEPARTMENT  OE  TRADE  AND  COMMERCE. 

It  is  proposed  to  create  a  new  department  to  be  called  the  "depart- 
ment of  trade  and  commerce".  I'he  head  of  this  department  would  be 
a  director  appointed  by  the  governor  and  serving  at  his  pleasure. 

The  purpose  of  this  department  would  be  tq  coordinate  and  central- 
ize, as  far  as  it  is  possible,  all  the  activities  of  state  government  which 
have  to  do  with  the  supervision,  regulation  and  control  of  corporations 
and  businesses  other  than  public  utilities.  It  is  not  only  an  annoyance  to 
business  interests  but  it  also  costs  considerable  in  time,  money  and 
effort  to  have  to  deal  with  a  large  number  of  state  departments  located  in 
widely  separated  buildings  as  they  are  at  present  and  to  file  several 
kinds  of  reports  required  by  dififcrcnt  state  departments.  All  corpora- 
tions operating  for  profit  render  reports  to  the  corporation  division, 
to  the  commissioner  of  securities  and  to  the  tax  commission.  Public 
utilities  making  a  fourth  report  to  the  public  utilities  commission.  Cor- 
porations are  thus  required  to  furnish  separately  much  common  informa- 
tion. 

By  centralizing  the  functions  which  have  to  do  with  the  granting 
of  certificates  of  incorporation,  granting  permission  to  issue  and  sell 
securities,  making  examinations,  filing  statements  and  reports,  safeguard- 
ing securities  on  deposit-,  etc.,  in  one  department,  a  start  would  be  made 
in  the  direction  desired  which  might  be  expected  to  influence  future  de- 
velopments in  the  field  of  business  regulation. 

The  work  of  the  department  would  be  organized  under  the  following 
bureaus : 

Bureau  of  corporations  which  would  combine  the  work  of 
the  corporatfon  division  now  in  the  ofHce  of  secretary  of  state 
with  the  work  of  the  conunissioner  of  securities.  It  is  obviously 
illogical  to  have  one  agency  grant  certificates  of  incorporation 
and  another  agency  make  investigations  as  to  financial  ability. 
Bureau  of  insurance. 


l8  REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 

Bureau  of  banks. 

Bureau  of  building  and  loan  associations. 

The  superintendent  of  insurance,  the  superintendent  of  banks 
and  the  inspector  of  building  and  loan  associations  would  be 
appointed  by  the  director  of  the  department  of  trade  and  com- 
merce instead  of  being  appointed  by  the  governor  eis  at  present, 
but  the  internal  organizations  of  the  bureaus  would  remain  sub- 
stsmtially  as  at  present. 

Bureau  of  stsmdards  to  be  discussed  later. 

Such  a  reorganization  as  herein  outlined  would  strengthen  the  gen- 
eral organization  of  the  state  and  in  no  way  interfere  with  the  conduct 
of  the  service  now  rendered.  By  the  appointment  of  a  director  of  trade 
and  commerce,  the  governor  would  be  relieved  of  the  necessity  for  direct 
supervision  over  a  number  of  separate  units.  Similar  regulatory  services 
would  be  coordinated  in  a  single  department  and  their  direct  relation  to 
the  state  government  would  be  made  more  clear  and  definite.  There  has 
been  observed  a  tendency  on  the  part  of  some  of  these  departments  to  feel 
that  they  are  employed  by  and  for  a  particular  class  of  business  and 
to  fail  to  emphasize  the  direct  concern  of  every  citizen  in  the  proper 
regulation  of  financial  institutions. 

By  consolidation  in  one  administrative  department,  certain  overhead 
costs  should  be  reduced  —  as  rent,  use  of  office  space  and  equipment, 
telephones  and  libraries.  Possible  reduction  of  office  staff  might  be 
aft'ected  and  at  least  it  would  be  possible  to  provide  for  their  permanent 
employment  on  the  work  of  several  bureaus  where  the  work  is  some- 
what seasonal  in  a  single  bureau.  The  feasibility  of  combining  examin- 
ing staffs  could  be  definitely  determined  and  the  possibility  o  feft'ecting 
economy  through  routing  examiners  to  reduce  traveling  expenses  could 
be  considered  by  the  proper  administrative  official  under  the  proposed 
reorganization  plan. 

Bureau  of  Standards. 

There  is  need  for  a  state  agency  which  would  concern  itself  with  the 
determination  and  enforcement  of  standards  of  quality  and  quanity  for 
various  commodities  purchased  and  sold  within  the  state.  Standards  are 
needed  for  weights  and  measures,  oils,  gasolene,  gas,  electricity  and 
various  materials  and  supplies.  It  is  recommended  that  a  start  be  made 
in  this  direction  by  the  creation  of  the  bureau  of  standards  in  the  de- 
partment of  trade  and  commerce,  and  that  the  inspection  of  oils  and  the 
regulation  of  weights  and  measures  be  carried  on  by  this  bureau. 

The  office  of  state  inspector  of  oils  was  created  to  prevent  the  sale 
of  illuminating  oil  which  contained  too  high  a  percentage  of  volatile  sub- 
stances. Oil  is  rejected  which  on  test  shows  a  flashing  point  at  120  de- 
grees Fahrenheit  or  below.  Today  the  tendency  is  for  oil  to  contain  a 
too  small  a  percentage  of  volatile  substances,  and  the  law  does  not  cover 


ON   ADMINISTRATIVE   REORGANIZATION  I9 

this  point.  In  other  words  the  quahty  of  oil  is  not  insured  by  the  present 
inspection.  The  inspection  of  oil  as  now  performed  is  practically  of  no 
value  to  the  consumer  of  oil.  The  inspector  of  oil  and  his  42  deputies, 
who  operate  in  38  districts,  are  not  employed  under  civil  service  regu- 
lations and  hence  the  positions  furnish  political  plums  for  the  party 
which  happens  to  be  in  control  of  the  state  administration.  The  fees 
paid  by  owners  of  oil  for  insi>ection  amount  annually  to  twice  the  ex- 
penditures of  the  department.  Citizens  interested  in  economy  in  state 
affairs  should  be  on  their  guard  against  specious  arguments  which  will 
be  made  in  behalf  of  this  department  should  this  recommendation  be 
seriously  considered  and  an  attempt  made  to  abolish  this  office. 

Statutory  changes  only  are  required  to  put  these  recommendations 
mto  effect. 

DEPARTMENT  OF  HEALTH. 

The  new  plan  of  organization  provided  for  in  the  Hughes  Act, 
passed  at  the  last  session  of  the  legislature,  should  be  thoroughly  tried 
out  before  further  changes  are  made  in  the  organization,  of  this  depart- 
ment. Three  exceptions  to  this  general  statement  are  suggested  for  the 
double  reason  of  relieving  other  departments  of  services  which  do  not 
belong  to  them  and  which  belong  properly  to  the  health  department  and 
will  easily  fit  into  the  new  health  law. 

It  is  recommended  that  the  following  services  be  transferred  to 
the  department  of  health : 

Bureau  of  vital  statistics  would  be  transferred  from  the  sec- 
retary of  state. 

Inspection  of  hotels  would  be  transferred  from  the  fire 
marshal. 

Food  and  dairy  division  would  be  transferred  from  the 
department  of  agriculture. 

BUREAU    OF    VITAL    STATISTICS. 

The  bureau  of  vital  statistics  is  to  the  commissioner  of  health  what 
the  cost  accounting  department  is  to  the  industrial  manager.  It  furnishes 
him  the  only  means  available  of  checking  up  on  his  activities.  The  in- 
fant mortality  rate  is  a  guide  to  him  with  respect  to  the  efficiency  of  his 
division  of  child  welfare.  The  deaths  from  tuberculosis  enable  him  to 
gauge  the  results  of  the  work  of  the  bureau  of  tuberculosis.  The  secre- 
tary of  state  has  no  administrative  use  for  this  information,  whereas 
the  department  of  health  must  constantly  study  and  analyze  vital  statistics. 
So  far  as  these  records  serve  a  non-health  purpose  as  for  identification 
of  parentage,  determination  of  age,  nationality,  etc.,  such  purpose  can  be 
just  as  easily  served  at  health  headquarters  as  at  the  secretary  of  state's 
office. 


20  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

INSPECTIOU  OF   HOTELS. 

It  is  obvious  that  the  matter  of  proper  handling  of  food,  sanitary 
conditions  ni  hotels  and  restaurants,  the  freedom  of  food  handlers  from 
communicable  disease  arc  functions  belonging  properly  to  that  depart- 
ment responsible  for  the  prevention  and  control  of  disease.  Furthermore, 
the  inspection  necessary  before  licenses  are  granted  to  hotels  and  restaur- 
ants duplicates  the  vi^ork  of  health  departments  in  the  cities  and  when 
the  work  of  the  county  health  organization  is  perfected  there  will  be 
further  duplication  of  inspections  outside  of  the  large  cities. 

FOOD   AND   DAIRY  DIVISION. 

Health  authorities  must  concern  themselves  with  the  prevention  of 
the  sale  of  unclean  and  impure  milk  and  dangerously  contaminated  food, 
wliether  specifically  charged  with  the  enforcement  of  the  food  laws  or 
not.  The  inspection  of  foods  and  drugs  and  sanitary  inspection  of  food 
handling  establishments  is  essentially  a  matter  of  public  health  and  for 
this  reason  its  transfer  from  the  department  of  agriculture  to  the  health 
department  is  recommended.  The  work  of  the  bureau  of  dairy  and 
food  inspection,  as  it  is  now  functioning,  has  nothing  whatever  to  do 
with  the  promotion  and  development  of  the  dairy  industry,  and  has 
little  relation  to  the  other  bureaus  of  the  department  of  agriculture.  (For 
further  discussion  see  Department  of  Agriculture.) 

PLUMBING    INSPECTION. 

It  is  recommended  that  the  division  of  plumbing  inspection,  now 
under  the  department  of  health,  be  transferred  to  the  division  of  work- 
shops and  factories  under  the  industrial  commission. 

The  best  modern  thought  with  reference  to  plumbing  inspection  in- 
dicates that  there  is  very  little,  if  any  connection  between  defective 
plumbing  and  conditions  detrimental  to  health.  In  accordance  with  this 
idea  many  cities  have  already  transferred  plumbing  inspection  from  the 
board  of  health  to  the  building  inspection  department. 

The  state  department  of  health  retains  a  small  force  for  this  work 
which  is  entirely  inadequate  to  cover  all  the  work  of  the  state  and  it  is 
thought  that  by  combining  that  activity  with  the  inspection  of  workshops 
and  factories  the  work  will  probably  be  carried  on  as  efficiently  as  at 
present  at  a  saving  in  expense. 

DEPARTMENT  OF  PUBLIC  WORKS. 
A  department  of  public  works  is  proposed  which  will  combine  under 
one  administrative  (?i"ficer  the   functions   of  the  state  highway  commis- 
sioner,  superintendent    of    public   works,    superintendent   of   lands   and 
buildings,  the  state  geologist,  and  the  control  of   school  and  ministerial 


ON    ADMINISTRATIVE   REORGANIZATION  21 

lands  now  under  the  control  of  the  auditor.  The  head  of  this  depart- 
ment would  b?  a  director  appointed  by  the  governor  to  serve  during  h;s 
pleasure. 

The  activities  of  this  department  would  be  performed  by  the  follow- 
ing bureaus : 

Bureau  of  highways. 
Bureau  of  Isinds,  canals,  parks. 
Bureau  of  public  buildings  and  grounds. 
State  geologist. 

BUREAU   OF    HIGHWAYS. 

At  present  the  highway  work  is  handled  by  a  commissioner  of 
highways  appointed  by  the  governor  and  a  so-called  highway  ad- 
visory board  of  four  members  appointed  by  the  governor.  This  board 
is  not  in  reality  an  advisory  board  but  an  administrative  board 
clothed  with  large  administrative  powers.  It  is  recommended  that 
the  highway  advisory  board  be  abolished  and  that  the  director  of 
public  works  appoint  a  chief  engineer  of  highways.  In  these  recom- 
mendations the  highway  commissioner  concurs. 

The  reasons  advanced  for  the  creation  of  the  highway  advisory 
board  are  first;  to  constitute  a  check  upon  the  highway  commissioner 
in  the  exercise  of  the  large  discretionarv'  powers  granted  to  him  in  the 
distribution  of  state  highway  funds  and  to  insure  that  highway  routes 
are  wisely  laid  out  and  planned  with  respect  to  main  thoroughfares. 

Second ;  to  prevent  the  "material"  men  from  obtaining  undue  in- 
fluence with  the  commissioner,  and,  third;  to  prevent  undue  county  in- 
fluence in  the  state  highway  department. 

The  existence  of  this  board  has  resulted  in  delay  and  indecision. 
An  honest  competent  highway  commissioner  would  need  no  check  by  a  lay 
board  and  an  incompetent  dishonest  commissioner  should  be  removed.  In 
general,  lay  men  are  more  easily  fooled  by  the  selling  talk  of  "material" 
men  than  technically  trained  engineers.  Lay  men  coming  from  different 
sections  of  the  state  would  be  more  apt  to  parcel  out  funds  in  accordance 
with  local  desires  than  would  a  smgle  trained  commissioner.  The  dif- 
ficulty of  functioning  rmder  the  present  arrangement  led  to  the  recom.- 
mendation  to  abolish  the  advisory  board  and  to  provide  for  the  right  of 
app^^al  from  a  decision  of  the  highway  commissioner  to  an  appeal  board 
consisting  of  three  officials  of  the  state,  resident  in  Columbus. 

In  practice  resident  engineers,  local  inspectors,  etc.,  employed  on 
state  highway  work  are  nominated  by  the  county  surveyors  and  con- 
firmed by  the  highway  commissioner.  Employees  thus  appointed  are 
more  amenable  to  local  influence  than  to  the  orders  of  the  state  highwav 
department. 

The  cost  of  road  maintenance  is  paid  for  by  the  state  but  spent  and 
supervised  by  county  surveyors.    The  incentive  is  here  to  get  as  much  as 


22  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

possible  from  the  state  for  the  double  purpose  of  patronage  and  making 
a  good  showing  on  the  roads. 

A  unified  system  of  maintenance  using  standardized  methods  is  im- 
possible. This  injection  of  the  county  surveyors  into  the  work  of  the 
state  highway  department  results  in  delay,  loss  of  time,  poor  work  and 
conflict  of  authority  and  interest  as  between  state  and  county. 

It  is  recommended  that  the  county  surveyor  be  divorced  from  the 
control  of  state  highway  work  and  that  the  resident  engineer  and 
local  inspectors,  now  appointed  by  the  county  surveyors  and  paid  by 
the  state,  be  appointed  directly  by  the  state  highway  department. 
The  state  pays  1/5  of  the  salary  of  the  county  surveyors  for  their  sup- 
posed supervision.  This  amounted  to  $48,529.00  last  year.  It  would  not 
be  necessary  to  add  a  single  man  to  the  department  to  handle  the  present 
amount  of  work,  and  the  amount  now  paid  as  salary  to  the  county  sur- 
veyors would  be  entirely  saved  with  actual  benefit  to  the  operation 
of  the  highway  department. 

BUREAU   OF   STATE   LANDS,    CANALS,    PARKS. 

This  bureau  would  exercise  control  over  the  activities  performed  by 
the  superintendent  of  public  works.  The  superintendent  of  public  works 
is  a  constitutional  officer  appointed  by  the  governor  for  a  term  of  one 
Near.  This  provision  would  be  repealed  and  the  head  of  this  bureau 
would  be  appointed  by  the  director  of  public  works. 

This  bureau  has  control  of  the  remains  of  the  old  Ohio  canals,  the 
leasing  and  selling  of  state  lands,  surplus  water  power,  control  of  state 
parks,  licensing  of  boats,  and  supervising  control  over  inter-county  drain- 
age, and  over  swamp,  mar.sh  and  overflow  land.  Supervision  of  school 
and  ministerial  lands  would  be  transferred  to  the  bureau  from  the  office 
of  auditor  of  state. 

BUREAU    OF   PUBLIC    BUILDINGS. 

The  supervision  and  control  of  the  state  house  and  grounds,  now 
performed  under  the  direction  of  the  adjutant  general  would  be  placed 
in  this  bureau.  The  head  of  the  department  of  public  works  would 
probably  be  an  engineer  and  her.ce  would  be  better  able  to  supervise 
such  work  than  a  military  officer.  The  function  performed  by  the  ex- 
officio  state  building  commission  would  be  lodged  with  this  bureau,  l^or 
concrete  illustrations  of  the  failure  of  the  adjutant  general  to  properly 
supervise  the  state  house  and  grounds  see  detailed  report  on  superintend- 
ent of  public  buildings. 

One  problem  which  is  pressing  for  attention  is  the  urgent  need  thai 
steps  be  taken  to  design  and  construct  a  state  office  building  to  house 
all  state  departments.  It  will  reriuire  considerable  time  to  make  the 
proper  study  of  space  needed,  to  select  a  site  and  make  the  plans. 


ON   ADMINISTRATIVE   REORGANIZATION  23 


STATE    GEOLOGIST. 

The  State  geologist  would  be  appointed  by  the  director  of  public 
works  instead  of  by  the  governor.  In  scientific  work  of  this  kind  it  is 
most  important  that  there  be  continuity  of  tenure  of  office  and  there 
should  be  no  opportunity  afforded  for  a  new  governor  to  appoint  a  new 
state  geologist. 

The  work  of  the  state  geologist  might  have  a  very  definite  relation 
to  the  activities  of  this  department.  Geological  formations  have  a  bearing 
upon  water  supply,  locations  of  canals,  of  roads  and  conservation  of 
state  parks.  The  location  of  road  materials  is  of  great  importance  to  the 
highway  department. 

CONSTITUnONAT,    CHANGES. 

A  constitutional  amendment  would  he  required  to  abolish  the  super- 
intendent of  public  works.  Only  statutory  changes  are  required  to  effect 
the  other  changes  recommended. 

DEPARTMENT  OF  AGRICULTURE.   * 
It  is  proposed  to  abolish  the  Iioard  of  agriculture  as  an  administra- 
tive agency  and  to  transfer  the  administrative  duties  to  a  director  of 
agriculture,  who  would  be  appointed  by  the  governor  to   serve  at   hi? 
pleasure.     The  board  might  be  retained  in  an  advisory  capacity. 

In  1917  the  act  governing  this  department  was  revised  throughout 
by  striking  out  "board  of  agriculture"  and  inserting  the  word  "secretary". 
The  time  has  now  arrived  for  the  final  step,  namely,  placing  all  the  purely 
executive  duties  in  the  hands  of  a  director  of  the  department. 

The  purpose  of  the  large  board  of  ten  members  was  to  secure  repre- 
sentation of  the  varied  interests  dealt  with  by  the  department  and  to 
bring  to  bear  upon  the  agricultural  problems  of  the  state  the  advice  and 
counsel  of  the  leading  agricultural  and  business  men  of  the  state.  This 
purpose  is  interfered  with  to  some  extent  by  requiring  these  men  to  de- 
vote a  considerable  part  of  their  time,  when  in  session,  to  routine  execu- 
tive duties  such  as  the  approval  of  appointments,  promotion  and  dis- 
missal of  employes  concerning  which  the  board  has  little  knowledge,  little 
time  or  opportunity  to  investigate  and  consequently  must  rely  almost 
wholly  upon  the  decision  of  the  secretary.  It  is  obvious  that  an  unpaid 
board  meeting  monthly  can  act  in  an  advis9ry  capacity  but  cannot  super- 
vise and  coordinate  the  work  of  several  departments.  By  the  creation 
of  an  advisory  board  the  original  puropses  would  be  served  and  the  de- 
partment could  function  properly  and  effectively  and  assume  the  position 
which  rightfully  belongs  to  it  as  one  of  the  coordinate  major  depart- 
ments of  state  government  having  a  representative  on  the  governor's 
cabinet.  The  tendency  in  other  states,  notably  Illinois,  Niebraska  and 
Idaho,  is  to  place  at  the  head  of  the  department  of  agriculture  a  single 
executive  appointed  by  the  governor. 


24  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  transfer  of  the  fcjllowing  functions  to  the  other  departments 
is  recommended: 

Dairy  and  food  inspection  to  the  department  of  heahh. 

l5oard  of  veterinary  examiners  to  the  department  of  education.    . 

DAIRY    AND    lOOD    INSPECTION. 

The  functions,  performed  by  this  bureau  are  the  enforcement  of  the 
food  and  drug  laws  of  the  state;  enforcement  of  the  narcotic  drug  law: 
m  iking  sanitary  inspections  of  food  handling  establishments  and  testing 
ana  adjusting  the  work  standards  of  cr.unty  and  city  sealers  of  weights 
and  measures.  These  activities  have  nothing  whatever  to  do  with  the 
promotion  and  development  of  the  dairy  industry  of  the  state  and  there- 
fore, i;he  work  is  not  closely  related  to  the  other  bureaus  of  the  depart- 
ment of  agriculture. 

The  following  facts  point  to  the  conclusion  that  the  logical  place  for 
this  work  is  under  the  department  of  health. 

I — The 'inspection  of  food  and  drugs  and  the  sanitary  inspection 
of  food  handling  establishments  and  dairies  is  essentially  a 
matter  of  public  health. 

2  —  The  local  health   authorities   in  cities  and  towns  of  the  state 

are  charged  with  these  functions  and  it  is  desirable  that  the 
state  health  department  should  exercise  control  and  supervision 
over  their  activities  and  that  they  should'  turn  to  the  state 
health  department  for  advice  and  guidance  in  the  solution  of 
their  problems. 

3  —  The   analysis   of    food,   drugs   and   milk   samples   collected   by 

dairy,  food  and  drug  inspectors  are  made  by  the  laboratory  of 
the  state  board  of  health  and  it  would  be  advantageous  to 
place  the  supervision  of  all  this  work  in  the  same  place. 

BOARD   OF    VETERINARY    EXAMINERS. 

The  function  performed  by  this  board  is  similar  in  character  to  that 
performed  by  other  registration  and  licensing  boards  for  other  professions 
such  as  accountancy,  dentistry,  medicine,  etc.  In  the  interest  of  economy 
and  of  higher  standards  this  work  should  be  done  by  a  single  division 
of  registration  for  all  profes.-;ions.  It  is  therefore  recommended  that  the 
duties  ot  this  board  be  transferred  to  the  examining  and  licensing  division 
in  Llic  (kinrtment  of  education. 

INSPECTION   OF  WEIGHTS   AND   MEASURES. 

This  function  is  now  performed  by  the  dairy  and  food  inspection 
division  in  the  department  of  agriculture  and  would  be  transferred  to  the 
bureau  of  standards  in  the  department  of  trade  and  commerce. 


ON   ADMINISTRATIVE   REORGANIZATION  25 

All  the  above  recommendations  can  be  put  into  effect  by  statutory 
changes. 

INDUSTRIAL  COMMISSION. 

The  industrial  commisison  is  composed  of  three  members  appointed 
by  the  governor  for  over-lapping  terms  of  three  years. 

The  functions  of  the  commission  include  the  following:  administer- 
ing the  state  insurance  fund  for  the  benefit  of  injured  and  dependents 
of  killed  employees;  enforcing  laws  relative  to  the  protection  of  life, 
health  and  safety  of  persons  employed  in  industrial  and  commercial 
establishments,  frequenters  of  public  buildings  and  occupants  of  tene- 
ment, or  apartment  houses  and  institutions ;  prescribe  hours,  labor  safety 
devices  and  safeguards ;  promote  voluntary  arbitration,  mediation  and 
conciliation  of  disputes  between  employer  and  employee;  establish  free 
public  employment  agencies  and  supervise  private  employment  agencies ; 
collect  and  publish  statistical  information;  examine  and  license  steam 
engmeers  and  censor  moving  picture  films. 

The  organization  of  the  commission  nominally  consists  of  five  de- 
partments actually  it  consists  of  ten  coordinate  divisions,  the  head  of  each 
being  a  director  responsible  to  the  industrial  commission. 

The  workmen's  compensation  department  receives*  at  least.  90%  of 
the  attention  of  all  the  members  of  the  commission.  This  leaves  only 
10%  of  their  time  for  the  supervision  of  the  nine  other  independent 
activities. 

It  is  recommended  that  the  commission  constitute  a  separate  de- 
partment of  government  with  tlirce  commissioners  appointed  as  at 
present.  The  commission  has  quasi-jitdicial  and  quasi-legislative  powers 
in  the  awarding  of  damages  and  in  the  making  of  rules  and  enforcing 
thom. 

The  changes  recommended  in  this  department  have  to  do  largely 
with  the  internal  organization.  The  most  important  changes  are  as 
follows : 

A  chief  administrator  would  be  ap]iointed  to  have  supervision  and 
control  over  all  administrative  matters  concerned  with  the  operation 
and  co-ordination  of  the  several  bureaus.  This  would  leave  the  members 
of  the  commission  free  to  devote  their  energies  to  comprehensive  plan- 
ning, determination  of  policies  and  the  exercise  of  judicial  functions. 

A  state  insurance  fund  manager  would  be  employed  under  the 
direction  of  ?.  chief  administrator  to  ro-ordinate  the  activities  of  the 
several   divisions  of  the  workmen's  compensation   department. 

The  compensation  department  as  at  present  constituted  is  made  up 
of  four  co-ordinate  divisions,  each  under  the  direction  of  a  chief  respon- 
sible immediately  to  the  ccmmissirin.  The  ultimate  aim  of  all  four 
divisions  is  the  same,  and  the  fulfillment  of  this  aim  depends  unon 
properly  articulated  action  among  these  divisions.  To  secure  this  a  single 
held  with  authority  to  enforce  co-ordination  is  essential. 


26  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

It  is  recommended  that  the  inspection  activities  —  workshops  and 
factories,  boiler  inspection,  mines  —  he  consoHdated  into  one  division 
under  the  direction  of  one  chief,  and  that  the  functions  now  performed 
by  the  state  fire  marshal  be  transferred  to  this  division  of  inspection. 

All  inspections  have  the  same  end  in  view  and  the  principle  and 
philosophy  governing  them  is  a  common  one.  It  is  recognized  that  mine 
inspection  requires  the  services  of  specialized  inspection,  and  that  for 
practical  reasons  boiler  inspection  may  have  to  be  continued  as  at  present. 
But  the  concentration  of  supervision  will  bring  together  all  the  forces  in 
the  industrial  commission  to  work  on  the  problem  of  reducing  accidents, 
promoting  the  safety  and  welfare  of  all  employes. 

The  chief  inspector  of  the  department  of  inspection  would  be 
furnished  a  staff  of  qualified  technical  assistants,  so  that  the  work 
of  this  department  might  be  carried  on  more  eflFectively. 

Safety  engineering  has  become  a  specialized  profession.  Large 
factories  employ  safety  engineers  whose  sole  business  it  is  to  introduce 
safety  measures  and  to  prevent  accidents  and  injuries.  If  the  industrial 
commission  wants  to  accomplish  results  in  safety  work  it  must  provide 
employees  who  can  speak  with  authority  and  whose  judgments  will  be 
respected  by  employers  throughout  the  state.  A  stafif  of  specialists  is 
needed  who  can  pass  authoritatively  on  problems  brought  in  by  inspectors 
in  the  field.  The  inspectors  would  continue  to  be  employed  in  their 
present  capacity. 

It  is  recommended  that  the  accident  statistics  be  furnished  the  divi- 
sion of  workshops  and  factories  currently,  and  that  this  information  be 
used  as  a  basis  for  planning  the  work  of  inspectors.  This  is  necessary 
if  the  inspection  department  is  to  know  what  its  problems  are,  where 
they  are  and  if  it  is  to  be  able  to  direct  the  efforts  of  the  inspectors  to 
the  maximum  advantage. 

It  is  recommended  that  the  department  of  investigation  and  statistics 
be  divided  into  two  independent  divisions.  Namely ;  division  of  employ- 
ment, and  division  of  statistics  and  investigation.  Each  under  a  separate 
officer. 

The  division  of  statistics  and  investigation  would  be  under  the 
direction  of  a  qualified  statistician,  and  all  the  statistical  work  of  the 
industrial  commission  would  be  centralized  here.  This  work  would 
include  the  collection  of  and  analysis  of  accident  statistics 

A  proper  system  of  rec(jr(l  and  accounts  should  be  maintained  in 
the  state  insurance  fund   (sec  report  of  S.  11.  Wolfe). 

The  department  of  film  censorship  bears  no  natural  relationship  tc 
the  functions  and  activities  of  the  other  branches  of  the  industrial  com- 
mission and  little  supervi'^ion  is  exercised  by  the  industrial  commission 
over  the  department. 

It  is  recommended  that  this  deparlment  be  transferred  to  the  depart- 


ON   ADMINISTRATIVE   REORGANIZATION  2'J 

mtnt  of  education;  and  constitute  one  of  the  divisions  of  the  educational 
department. 

STATE  FIRE   MARSHAL. 

The  functions  of  this  office  are  similar  in  character  to  the  work 
performed  by  the  inspectors  of  the  division  of  workshops  and  factories. 
It  would  be  a  comparatively  simple  matter  for  factory  inspectors  to  in- 
clude all  conditions  which  make  a  building  dangerous  to  life,  or  make 
it  a  fire  hazard.  In  fact  the  distinction  in  many  instances  is  almost  im- 
possible to  make.  For  an  inspector  to  visit  a  building,  inspect  it  thor- 
oughly and  refrain  from  ordering  corrections  because  these  belong  to 
another  department  results  in  serious  loss.  This  is  the  situation  under 
present  conditions.  On  the  otlier  hand  it  is  not  inconceivable  to  have 
two  recommendations  made  for  the  correction  of  the  same  defect.  There 
is  a  distinct  duplication  of  work  without  any  special  benefit  accruing 
from  this  duplicate  inspection. 

For  purposes  of  investigating  fire  and  prosecuting  persons  suspected 
of  arson,  and  similar  crimes,  a  staff  of  men  delegated  solely  for  this 
work  would  be  employed  by  the  division  of  worshops  and  factories. 

The  educational  work  now  carried  on  by  the  state  fire  marshal  could 
be  carried  on  by  a  safety  director  of  the  division  of  workshops  and  fac- 
tories, whose  duty  it  is  to  educate  factory  owners  and  the  people  of  Ohio 
in  taking  precaution  against  accidents.  The  education  for  fire  prevention 
is  along  the  same  line  and  could  be  done  by  the  same  organization. 

PUBLIC  UTILITIES  COMMISSION. 

The  public  utilities  commission  consists  of  three  members  who  are 
appointed  by  the  governor  with  the  advice  and  consent  of  the  senate  for 
over-lapping  terms  of  six  years. 

It  is  recommended  that  the  commission  constitute  a  separate  depart- 
ment with  three  commisisoners  appointed  by  the  governor,  without  the 
advice  and  consent  of  the  senate.  It  seems  illogical  to  expect  results 
from  a  governor  and  tie  his  hands  by  requiring  the  confirmation  of  the 
senate  of  his  appointments.  A  public  utilities  commission  exercises  both 
semi-judicial  and  administrative  functions  and  a  several  headed  control 
is  justified. 

It  is  believed  tht  such  a  conmiission  should  not  be  under  the  control 
of  any  other  department. 

DEPARTMENT  OF  EDUCATION. 

The  educational  activities  of  the  state  are  performed  by  thirteen 
different  types  of  organizations  as  follows : 

I.  A  state  department  of  public  instruction  at  the  head  of  which 
is  a  state  superintendent  of  public  instruction,  a  constitutional 
officer  appointed  by  the  governor  for  a  term  of  four  years. 


28  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

2.  A  State  board  of  education  tor  the  administration  of  federal 
vocational  aid  (Sniith-Hugbes)  appointed  by  the  governor. 

3.  Three  universities:  Miami  (1033);  Ohio  (1023);  Ohio  state 
(6608),  each  separate  from  the  other  with  its  own  board  of 
trustees  appointed  by  the  governor. 

4.  An  agricultural  experiment  station  at  Wooster  under  a  separate 
board  of  trustees  appointed  by  the  governor. 

5.  Two  normal  colleges,  at  P.ovvling  Green  (240),  Kent  (209). 
with  separate  board  of  trustees. 

6.  Thirty-five  county  normal  schools  maintained  jointly  by  the 
state  and  counties,  each  under  the  supervision  of  the  county 
superintendent  of  schools  and  department  of  public  instruction 
working  through  a  normal  school  director. 

7.  A  combined  normal  and  industrial  department  of  Wilberforce 
university  (194  Onio  students,  575  total),  which  is  operated 
under  a  board  of  nine  trustees  five  of  whom  are  appointed  by 
the  governor. 

8.  The  soldiers'  and  sailors'  Orphans'  Home  at  Xenia  (650) 
imder  a  board  of  trustees  named  by  the  governor. 

9.  Six  school  departments,  m  the  girls'  industrial  school  at  Dela- 
ware (4.S0)  ;  boys'  industrial  school  at  Lancaster  (1200); 
woman's  reformatory  at  Marysville  (140)  ;  men's  reformatory 
at  Mansfield  (1400)-.  penitentiary  at  Columbus  (2,000)  and 
the  new  prison  farm  at  London  (200),  each  of  these  being 
under  the  supervision  of  the  board  of  administration. 

10.  Two  state  schools,  for  the  blind  fi8o)  and  for  the  deaf  (4/0). 
also  under  the  board  of  administration. 

11.  The  state  library  service  under  a  board  of  three  commissioners 
appointed  by  the  governor. 

12.  The  archaeological  and  historical  society  under  a  board  of  six 
trustees  appointed  by  the  governor  and  of  nine  trustees  elected 
by  the  society. 

13.  The  department  of  fihn  censorship. 

No  central  control  or  relationship  now  exists  for  these  separate 
services.  There  is  no  debate  as  to  the  need  of  organization  for  team 
work,  but  there  has  been  some  discussion  as  to  the  best  methods  of  ac- 
complishing this  result.     Three  methods  have  been  conidered : 

First,  placing  all  state  educational  services  under  a  single  board 
with  a  single  executive  who  would  be  responsible  for  naming  the 
heads  of  the  universities,  normal  schools  and  the  educational  heads 
in  correctional  institutions ; 

Second,    placing    the    universities    and    normal     schools    under    a 
state  board  of  education  with  one  executive  of^cer ; 


ON   ADMINISTRATIVE   REORGANIZATION  29 

Third,  combining  facts  about  educational  services  before  a 
combination  of  management  takes  place.  This  can  be  done  by  re- 
organizing the  state  department  of  public  instruction  and  making  it 
responsible  for  studying  100%  of  Ohio's  school  needs  and  school 
work  and  reporting  the  facts  to  the  governor,  legislature  and  public. 

The  organization  of  the  universities  and  normal  schools  under 
a  single  board  is  not  suggested  because  opposition  to  it  has  already 
been  organized  and  intrenched.  The  alumni  of  these  institutions 
would  present  formidable  opposition  to  such  a  movement.  The  utter- 
most that  is  considered  practicable  is  to  give  the  state  department 
of  education  the  responsibility  for  investigative  supervision  over 
all  of  Ohio's  educational  needs  and  services. 

The  following  organization  is  suggested  to  accomplish  this  re- 
sult:  A  board  of  education  composed  of  five  members  to  be  appointed 
by  the  governor,  without  reference  to  party  affiliation,  for  overlap- 
ping terms;  this  board  to  appoint  a  director  of  education  who  would 
be  in  charge  of  all  the  administrative  work  of  the  department,  in- 
cluding the  powers  now  possessed  by  the  state  superintendent  of 
public  instruction.  Provision  would  be  made  by  law  whereby  the 
present  superintendent  of  public  instruction  would  act  under  the  super- 
vision of  the  director.  The  functions  of  the  board  of  education  would 
be  to  study  all  of  Ohio's  educational  activities,  including  the  supervision 
of  rural,  elementary  and  secondary  schools,  state  educational  institutions ; 
inspect  and  report  upon  the  educational  work  of  the  girls'  and  boys' 
industrial  schools,-  state  reformatories,  penitentiary,  schools  for  the  blind 
and  deaf  and  the  soldiers'  and  sailors'  orphans'  home;  study  and  report 
upon  the  five  state  colleges  for  teacher  training;  visit  and  report  upon 
the  services  of  the  three  state  universities  and  review  all  educational 
budgets  for  the  governor  and  legislature  with  special  reference  to  the 
needs  of  elementary  education  and  a  balanced  educational  program  for 
the  state. 

The  following  activities  would  be  transferred  to  the  department  of 
education : 

State  board  of  education  for  vocational  education; 
State  board  of  school  examiners; 
Examining  board  for  professions; 
Board  of  library  commissioners; 
Americanization  commission; 
Department  of  film  censorship. 

Two  new  activities  are  suggested,  namely,  an  art  commission  and 
a  voluntary  educational  council. 

ST.^TE   BOAiy)   OF   EDUCATION    FOR   VOCATIONAL   EDUCATION. 

This  board  was  created  to  obtain  and  administer  federal  (Smith- 
Hughes)  money  for  teaching  domestic  science,  agriculture  and  vocations. 


30  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  same  minds  that  are  apportioning  federal  aid  for  teaching  domestic 
science,  etc.,  should  be  the  res}X)nsil)le  minds  in  directing  the  develop- 
ment of  the  entire  school  system.  This  work  can  be  performed  by  the 
reorganized  department  of  education  and  even  the  present  board,  which 
would  be  abolished  favors  this  action. 

STATE    BOARD    OF   SCHOOL   EXAMINERS. 

This  board  consists  of  five  members  appointed  by  the  superintendent 
of  public  instruction.  The  function  of  this  board  is  to  fix  standards  of 
examinations  for  school  certificates. 

The  responsibility  for  this  work  should  rest  squarely  upon  the  de- 
partment of  education  and  its  executive  officer.  Furthermore,  the  ques- 
tion of  certification  needs  immediate  and  continuousi  study  such  as  only 
an  administrative  department  can  be  expected  to  give.  The  members 
of  this  examining  board  can  give  but  little  attention  to  the  work  and  in 
practice  the  responsibility  of  detail  work  is  borne  by  the  department  of 
public    instruction. 

EXAMINING    BOARDS    FOR    PROFESSIONS. 

At  present  there  are  eight  separate  examining  boards  with  32  mem- 
bers, each  chosen  from  within  the  profession  whose  entrance  and  profes- 
sional standards  it  guards.  The  professions  which  have  such  boards 
are:  Accountancy,  dentistry,  medicine,  nursing,  optometry,  pharmacy, 
veterinary  and  embalming. 

A  total  of  $10,850  was  expended  last  year  for  expenses  of  board 
members  and  $7,950  for  traveling  expenses  out  of  a  grand  total  of 
$46,263  for  maintaining  these  separate  boards.  It  is  apparent  that  a 
great  saving  could  be  efifccted  through  the  consolidation  of  these  boards 
in  a  single  department.  The  reasons  for  placing  the  supervision  of  "this 
work  in  the  department  of  education,  however,  are  much  more  funda- 
mental than  a  desire  to  effect  economy. 

The  basic  idea  underlying  every  one  of  these  exsunining  boards 
is  the  protection  of  the  profession,  rather  than  a  protection  of  the 
public.  It  is  true  that  within  each  profession  there  exists  a  socially- 
minded  grou])  which  strives  successfully  to  think  of  the  public  interest 
first,  but  it  is  also  true  that  in  spite  of  the  best  intentions  on  the  part 
of  examining  board  members  and  of  the  socially-minded  individuals  the 
point  of  view  has  hitherto  been  primarily  that  of  the  profession  which 
does  not  want  its  accepted  standards  lowered. 

The  time  has  come  when  the  public's  interests,  that  is  the  inter- 
ests of  those  who  patronize  these  professions  should  be  the  primary 
consideration  in  making  up  examinations.  It  is  for  this  reason  that 
it  i>  su,^,!4(sk(l  to  alxilisb  ilic  ])r('S(nl  Ixiards  and  to  recognize  the  solidarity 
of  the  state's  interests  and  the  educaticnal  motive  which  should  dominate 


ON   ADMINISTRATIVE   REORGANIZATION  3 1 

professional  examinations  by  placing  all  this  work  under  the  direction  of 
the  proposed  department  of  education. 

Under  the  proposed  plan  no  physician,  dentist  or  nurse  would  be 
permanently  retained,  except  as  a  possible  employe,  by  the  state  as  an 
advisor  in  examinations.  Individuals  or  groups  would  be  called  in,  each 
a  specialist  in  his  field,  for  advice  with  respect  to  examinations,  perhaps 
to  interview  and  test  the  candidates  and  to  mark  papers.  Not  an  iota 
of  professional  and  scientific  ability  would  be  detracted  from  the  prepara- 
tion of  the  examination  and  the  marking  of  it.  Laymen  would  not  be 
engaged  for  professional  examinations. 

By  coordinating  this  work  under  die  department  of  education  the 
public  purpose  of  all  these  professions  would  be  emphasized.  No  per- 
son ought  to  be  given  the  state's  permission  to  practice  medicine  who 
does  not  know  the  facts  about  modern  preventive  hygiene.  A  dentist 
should  know  how  teeth  can  be  saved  and  the  social  importance  and 
moral  obligation  of  saving  teeth,  as  well  as  the  mechanical  technique  of 
repairing  them. 

The  reasons  for  not  recommending  the  placing  of  these  consolidated 
services  in  the  department  of  health  are  that  this  department  must  secure 
the  full  cooperation  of  all  practitioners,  if  it  is  to  be  successful.  This 
full  cooperation  would  be  difficult,  if  not  impossible,  if  the  state  depart- 
ment of  health  were  mixed  up  with  a  factional  discussion  of  proposed' 
new  standards  for  admission  into  the  profession  and  investigating  charges 
ag'^inst  individual  practitioners. 

By  recommending  that  this  examining  work  come  under  the  depart- 
ment of  education  instead  of  a  consolidated  examining  board,  it  is  hoped 
to  secure  all  the  advantages  of  concentration  plus  the  additional  advan- 
tages of  recognizing  the  state's  part  in  the  admission  of  new  practitioners 
to  professions  which  it  licenses  as  part  of  its  educational  program  and 
accountability. 

LIBRARY    SERVICE. 

The  board  of  library  commissioners  consists  of  three  members  ap- 
pointed by  the  governor.  The  functions  of  this  commission  are  the  main- 
tenance of  a  public,  general  reference  and  document  library  in  the  state 
house ;  organization  of  new  libraries ;  traveling  libraries  and  a  legislative 
reference  library. 

The  library  system  is  not  only  at  a  standstill,  but  has  for  sometime 
been  loosing  ground.  .Such  is  the  emphatic  and  public  testimony  of  the 
state  library  association.  Insiders  and  outsiders  alike  admit  that  no  part 
of  Ohio's  public  work  is  more  in  politics  than  the  state  library.  At  no 
point,  except  in  the  legislative  reference  division,  is  the  present  organiza- 
tion for  rendering  service  at  all  adequate. 

If  the  library  work  were  transferred  to  the  reorganized  department 
of  education  there  could  be  created  a  special  library  division  with. an 


32  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

able  librarian  at  its  head  who  would  be  free  from  all  entanglements  and 
the  work  could  be  developed  as  it  should  be.  Furthermore,  it  should  be 
recognized  that  library  work  is  educational  work. 

It  would  be  easier  to  interest  the  teachers  in  the  country  districts 
and  small  towns  in  the  Av-ork  of  the  library  and  make  larger  use  of  it  if  it 
were  advertised,  as  it  could  be  done,  as  a  part  of  the  educational  system. 

ART   COMMISSION. 

It  is  recommended  that  an  art  commission  be  organized  under  the 
department  of  education. 

The  functions  of  this  commission  would  be  to  review  all  plans  for 
state  buildings  and  parks  from  the  standpoint  of  beauty  and  conformity 
to  art  standards.  The  administrative  work  would  be  performed  by  a 
subordinate  of  the  director  of  education.  The  problem  would  not  call  for 
continued  attention  of  professional  men.  As  new  plans  were  submitted 
a  commission  or  jury  of  specialists  best  equipped  to  review  the  particular 
problem  would  be  named.  Alter  the  report  had  been  made  the  duties 
of  this  voluntary  commission  would  cease. 

The  kind  of  art  commission  Ohio  needs  is  not  so  much  one  that  in- 
sists upon  conventional  artistic  merit  in  public  buildings,  but  which  will 
keep  alive  throughout  the  state  an  interest  in  beauty  making.  It  is  a 
vastly  bigger  ideal  to  have  the  public  keenly  interested  in  beauty  making 
in  the  country  around  farms,  on  school  grounds  and  front  yards,  in  ap- 
proaches to  town,  through  railroad  stations  and  in  public  buildings  than 
to  have  a  uniform  and  acceptable  type  of  architecture. 

The  director  of  the  art  needs  and  advances  in  the  state  would  give 
continuous  studv  and  attention  to  ways  and  methods  of  teaching  school 
children,  teachers  and  parents  the  double  satisfaction  of  outward  beauty 
and  of  inward  desire  to  participate  in  beauty  making.  Conferences  would 
be  called  to  consider  what  could  be  done  from  time  to  time  for  beauty 
throughout  the  state ;  progressive  educational  campaigns  would  be  waged 
by  promoting  community  art  and  assistance  would  be  offered  local  com- 
mittees, which  in  the  next  few  years  will  be  erecting  many  memorial 
monuments  and  buildings. 

VOLUNTARY  EDUCATIONAL  COUNCIL. 

A  re[)resentative  educational  council  is  suggested  for  the  purpose  of 
establishing  some  direct  and  official  contact  between  the  department  of 
education  and  the  various  civic  interests  which  are,  or  ought  to  be,  con- 
tmuously  working  for  better  educational  policies  in  their  localities, 
counties  and  the  state.  Representatives  from  various  civic  organizations, 
such  as  the  Federation  of  Women's  Clubs,  Federation  of  Labor,  Ro- 
tarians,  Kiwanians,  Society  of  Fngineers,  Accountants,  Dentists,  etc., 
would  be  selected  by  the  organization-;   and  certified  to  the  director  of 


ON    ADMINISTRATIVE   REORGANIZATION  .  33 

education  who  would  call  conferences  for  the  purpose  of  suggestions, 
information,  criticism  and  proposals  with  respect  to  Ohio's  educational 
needs. 

No  salary  should  attach  to  membership  in  this  council.  It  is  doubt- 
ful if  it  would  be  necessary  or  expedient  to  have  the  state  pay  the  ex- 
penses of  members  as  all  such  agencies  have  a  vital  interest  in  education. 
The  solidarity  of  the  state's  interest  in  education  could  thus  be  continually 
and  progressively  emphasized. 

ARCHAEOLOGTCAL  AND   HISTORICAL  SOCIETY. 

It  is  recommended  that  the  department  of  education  be  charged  with 
responsibility  for  studying  the  work  of  this  society,  with  a  view  to  the 
use  of  its  results  by  public  schools,  teacher  training  schools  and  univer- 
sities and  that  the  result  of  such  inspection  and  analysis  of  its  budget 
estimate  be  submitted  biennially  to  the  governor,  legislature  and  public. 

DEPARTMENT  OF  WELFARE  ADMINISTRATION. 

The  board  of  administration  was  created  in  191 1  tmder  Governor 
Harmon's  administration  for  the  purpose  of  centralizing  the  administra- 
tion of  the  state  benevolent,  correctional  and  penal  institutions  tmder  one 
central  authority.  The  independent  boards  which  managed  each  institu- 
tion separately  were  abolished  and  a  board  of  administration,  consisting 
of  four  members  appointed  by  the  governor  at  salaries  of  $4000  each, 
assumed  control.    Great  economies  have  resulted  from  this  change. 

This  board  is  responsible  for  expressing  Ohio's  best  thought  in 
managing  twenty-three  difl"erent  in.stitutions  having  an  aggregate  popula- 
tion of  25,000  and  spending  $12,000,000  each  biennium.  The  institutions 
under  its  control  are  as  follows:  eight  hospitals  for  insane  —  Athens, 
Cleveland,  Columbus,  Dayton,  Lima,  Long  View,  Massillon  and  Toledo; 
Ohio  hospital  for  epileptics;  institution  for  feebleminded;  state  school 
for  blind;  state  school  for  deaf;  Ohio  soldiers'  and  sailors'  home;  Madi- 
son home ;  boys'  industrial  school ;  girls'  industrial  school ;  Ohio  reforma- 
tories at  Mansfield  and  Marysville ;  penitentiary ;  reformatory  for  women' 
new  prison  farm  and  Ohio  state  sanatorium. 

It  is  recommended  that  the  board  of  four  members  be  abolished 
and  that  a  department  of  Welfare  administration  be  created  under 
a  director  to  be  appointed  by  the  governor  and  to  serve  at  his 
pleasure. 

It  is  further  recommended  that  the  following  activities  be  transferred 
to  this  department : 

Administrative  work  of  the  commission  for  the  blind. 

The  support  bureau  and  children's  welfare  work  of  the  board  of 

state  charities. 
Management  of  the  soldiers'  and  sailors'  orphans'  home  at  Xenia. 

3 


34  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

If  adopted,  these  recommendations  will  put  into  one  executive's 
hands  the  administrative  duties  now  carried  on  by  sixteen  board  mem- 
bers, make  for  better  administration  of  all  services  involved  and  release 
salaries,  expense  money  and  energies  that  will  elsewhere  accomplish 
vastly  more  for  the  state  than  is  now  being  accomplished  by  the  present 
organizations. 

The  reason  for  substituting  a  single  director  for  four  members  as 
head  of  the  state's  administration  of  institutions  are  four : 

1.  —  The  work  of  a  judicial  character  that  called  for  board 
action  when  the  separate  institutional  boards  were  first  abolished 
has  now  been  accomplished ;  present  work  calls  for  study,  decision, 
action,  dispatch,  efficiency,  for  each  and  all  of  which  one  head  is 
everywhere  better  than  four; 

2.  —  The  cost  of  obtaining  four  men  of  the  caliber  contemplated 
when  in  191 1  the  salaries  were  fixed  at  $4000  is  now  prohibitive  for 
it  means  at  present  rates  from  $40,000  to  $60,000  a  year  for  initial 
salaries  in  this  one  office ; 

3.  —  Far  more  work  can  be  secured  from  specialists  employed 
for  field  work  if  they  have  to  account  to  but  one  superior  instead  of 
four; 

4.  —  One  person  able  to  decide  and  to  execute  will  have  a  con- 
tmuing  motive  to  study  causes  and  consider  and  propose  remedies 
where  a  board  of  four  has  found  it  impossible  in  nine  years  to  ade- 
quately utilize  in  this  way  either  the  expert  abiHty  on  its  own  pay- 
roll or  the  progressive  citizen  interest  and  institutional  experience 
of  Ohio  and  other  states. 

More  fundamental  reasons  still  for  substituting  one  executive  for 
four  coordinate  conferring  heads  have  to  do  with  the  larger  purposes 
for  which  Ohio  maintains  these  institutions : 

1.  —  The  board  has  after  all  these  years  failed  to  provide  for 
the  same  systematic  study  of  its  human  problems  which  it  has  given 
to  problems  of  purchasing  and  of  controlling  finances; 

2.  —  Although  free  to  print  illuminating  reports  and  to  require 
scientific  analysis  of  its  results  and  lessons,  it  has  failed  to  do  both ; 

3.  —  After  taking  the  statesmanlike  step  of  bringing  on  a 
specialist  in  mental  abnormalities  as  head  of  its  bureau  of  juvenile 
research  it  has  given  him  only  restricted  use  even  of  its  own  labora- 
tories, has  failed  to  use  him  in  its  institutions  and  has  actually  per- 
mitted his  exclusion  from  the  boys'  industrial  school ; 

4.  —  It  has  failed  to  give  the  state  the  truths  needed  to  show 
whether  the  new  penitentiary  plans  are  an  unimaginative  org}^  of 
expense  and  misj^lanning  as  Mr.  Cummin  has  reported  to  your  com- 
mittee, or  are  as  the  building  commission  maintains,  a  wise  expendi- 
ture of  $10,000,000; 


ON   ADMINISTRATIVE   REORGANIZATION  35 

5.  —  It  has  failed  to  turn  the  searchlight  of  its  institutional  ex- 
perience upon  the  causes  of  crime  and  the  possibility  of  greatly  de- 
veloping probation  work  in  counties  in  order  to  keep  men  out  of 
state  penal  institutions ; 

6.  —  It  has  failed  to  develop  leadership  of  state  thought  re- 
garding the  vast  problems  entrusted  to  it. 

It  has  has  failed  in  these  services  not  because  it  did  not  want 
to  help,  but  because  it  was  asked  to  do  what  boards  and  commissions 
seldom  do,  namely,  manage  and  administer  as  well  as  legislate.  It  has 
been  no  one  member's  duty  to  look  ahead  for  the  entire  many-sided 
problem.  Even  where  one  member  has  special  knowledge,  he  must  defer 
to  three  others  who  lack  his  special  knowledge  but  who  are  compelled 
to  go  through  the  form  of  weighing  his  evidence  and  challenging  his 
recommendations.  With  such  diffusion  at  the  top,  it  has  naturally  been 
impossible  for  the  state  to  secure  from  trained  subordinates  the  service 
they  could  give  were  efficiency  and  initiative  fostered  and  compelled  by 
an  exacting  head  with  a  consistent  cumulative  policy.  The  detailed  report 
on  the  work  of  the  board  of  administration  contains  many  concrete  il- 
lustrations of  the  failure  of  the  present  board  to  manage  and  administer, 
as  well  as  a  lack  of  supervision  and  conrol. 

The  reason  for  transferring  the  administrative  services  of  the  com- 
mission for  the  blind  to  the  department  of  welfare  administration,  is  that 
this  commission  has  now  become  a  large  business  enterprise.  Its  pur- 
chases, its  sales,  its  patrons,  its  homes  to  be  visited  and  blind  persons 
to  be  taught  at  home,  and  its  traveling  expenses,  have  exceeded  the  point 
where  a  voluntary  commission  can  give  more  than  perfunctory  attention 
to  its  work,  costs,  and  results.  The  time  of  a  capable  executive  should 
be  free  for  extending  and  improving  the  wgrk  without  the  necessity  of 
trying  to  give  a  widely  scattered,  seldom-meeting  board  enough  knowl- 
edge about  the  work  to  justify  it  in  voting  authorization.  The  voluntary 
interest  of  persons  devoted  to  furthering  the  interests  of  the  blind  can 
be  utilized  more  effectually  in  educational  work  that  does  not  involve 
administrative  duties. 

The  reason  for  transferring  the  administrative  duties  now  being 
performed  by  the  state  board  of  charities  is  three-fold;  they  belong 
properly  with  other  administrative  services  in  this  same  field  where  they 
may  receive  exacting  supervision ;  they  cannot  be  well  enough  done  by  anv 
board  that  meets  infrequently ;  and  they  divert  the  attention  and  energy 
of  board  members  from  duties  of  inspection,  criticism  and  recommenda- 
•tion  which  should  be  regarded  as  imperative,  but  which  actually  has 
lapsed  to  almost  negligible  consequence. 

The  reason  for  placing  the  soldiers'  and  sailors'  orphans'  home  in  a 
large  administrative  department  is  that  this  institution  for  over  six  hun- 
dred children,  is  entitled  to  advantages  of  wholesale  purchasing,  system- 


36  Ki;i'(>kT   oi'-   JOINT   I.KCrSLATJAJ-:   C:(-)MiMlTTi:E 

atic  repairs,  expert  advice  on  farming  ami  gardening,  expert  promotion  at 
budget  time,  expert  executive  supervision  and  helpfulness  which  a  volun- 
tary board  of  trustees  does  not  and  cannot  furnish.  The  objection  that 
soldiers'  children  should  not  be  classified  with  the  unfortunates  who  are 
cared  for  by  the  administrative  department,  seemed  strong  enough  when 
the  board  of  administration  was  established  to  prevent  including  this 
school  under  central  administration.  But  that  objection  was  largely  the 
result  of  misunderstanding.  No  disparagement  of  any  class  is  involved 
in  giving  it  heat  or  engineering  service  or  budgetary  oversight  or  execu- 
tive supervision  from  the  same  center  which  supplies  other  diiTerent  con- 
stituencies. The  friends  of  the  Xenia  home  surely  do  not  want  less  for 
the  children  at  this  school  than  the  utmost  which  expert  direction  will 
give.  Nor  can  they,  after  the  facts  are  explained,  be  willing  to  deny  the 
state  advantages  that  would  come  from  putting  this  service  where  the 
utmost  can  be  learned  from  it. 

STATE  BOARD  OF  WELFARE. 

To  take  the  place  of  the  present  board  of  state  charities  a  state 
board  of  welfare  consisting  of  five  members  appointed  by  the  governor 
for  overlapping  terms  of  five  years  each,  is  recommended  as  a  propa- 
ganda, educational  and  inspectional  agency.  This  board  would  have  no 
administrative  duties  to  perform,  but  its  duty  would  be  to  visit  and  in- 
vestigate state  institutions  for  the  purpose  of  checking  up  on  the  work 
which  is  being  done  by  the  department  of  welfare  administration,  and  re- 
port the  facts  to  the  director,  the  legislature  and  the  public.  It  will  have 
no  connection  whatever  with  the  management  of  institutions,  its  chief 
function  being  analysis  and  criticism  of  programs  and  results  and  con- 
structive recommendations  as  to  new  policies  and  programs  which  should 
be  undertaken. 

The  reasons  for  abolishing  the  present  board  and  establishing  a  dif- 
ferently constituted  board  include  these:  the  present  board  has  a  com- 
bination of  duties,  inspectional,  advisory  and  administrative,  of  which 
the  administrative  duties  have  taken  much  the  greater  part  of  its  time 
and  interest.  Its  inspectional  and  advisory  functions  have  ebbed  to  a 
lov/  point.  If  the  administrativq  functions  were  taken  from  it  and  it 
were  required  toi  do  more  by  way  of  inspection  and  recommendation  it 
would  be  extremely  difficult  for  it  to  shake  oi?  the  bonds  of  a  few  years 
and  habits  which  have  become  adapted  to  its  administrative  duties.  By 
abolishing  the  present  board  the  governor  would  be  free  to  select  men  and 
women  without  prejudice  because  of  present  membership  on  the  board. 

DEPARTMENT  OF  CIVIL  SERVICE. 

The  dei)artmcnt  of  civil  service  is  the  employment  department  of  the 
state   government.      Tt   is   charged    with    the   administration    of    the   civil 


ON   ADMINISTRATIVE   REORGANIZATION  37 

service  laws  which  were  passed  in  conformity  with  that  provision  of  the 
constitution  which  provides  that  appointment  and  promotion  shall  be 
made  according  to  merit  and  htness  to  be  ascertained,  as  far  as  practicable 
by  competitive  examination. 

The  original  functions  of  civil  service  were  to  oppose  and  destroy 
the  abuses  of  the  spoils  system  by  a  system  of  checks  on  entrance  to  the 
service  and  retention  of  persons  so  checked  at  entrance  during  good 
behavior.  The  gradually  increasing  extent  of  the  functions  performed 
by  the  state  government  renders  it  continually  more  important  that 
trained  and  competent  persons  shall  be  secured  for  the  conduct  of  public 
business.  At  the  present  time  increased  attention  is  being  given  to  the 
methods  of  securing  and  holding  highgrade  experts  in  public  service. 
The  excessive  cost  of  labor  turnover,  or  the  hiring  and  firing  of  employees 
indiscriminately,  is  realized  as  never  before  and  efforts  are  being  made 
in  both  industry  and  public  service  to  reduce  these  costs.  This  cost  has 
been  variously  estimated  by  private  employers  as  being  from  $40  to  $200 
per  person  discharged.  From  an  organization  standpoint  the  work  of  the 
department  of  civil  service  is  exactly  comparable  with  the  employment 
department  in  industry;  both  are  likened  to  the  purchasing  department, 
the  difference  being  that  the  two  former  purchase  personal  service  and 
the  latter  material,  supplies  and  equipment.  Out  of  a  total  expenditure 
of  $25,000,000  for  the  state  of  Ohio  last  year  $7,000,000  or  one-third 
was  expended  for  personal  service. 

The  commission  consists  of  two  members  appointed  by  the  governor 
for  terms  of  four  years  each.  Their  salaries  are  $4,000  each.  The  usual 
number  of  commissioners  in  other  states  which  have  civil  service  com- 
missions is  three.  The  first  civil  service  commission  m  Ohio  had  three 
members  (1913-15).  The  two  member  commissions  has  existed  since  the 
middle  of  1915.  it  is  the  usual  practice  for  the  members  of  such  com- 
missions to  be  appointed  by  the  governor,  and  it  is  also  usual  to  require 
that  not  more  than  two  members  shall  belong  to  the  same  political  party. 
In  practice  such  provision  carries  with  it  the  implication  that  the  mem- 
bers shall  all  bear  a  party  label  and"  results  in  injecting  political  con- 
sideration into  the  selection  and  work  of  the  commission.  Emphasis  is 
placed  on  politics  in  a  body  where  politics  should  not  exist.  Respon- 
sibility for  lax  or  vigorous  administration  under  the  present  plan  in 
Ohio  can  not  be  definitely  lodged  with  either  party.  A  more  logical 
restriction  on  the  appointing  power  of  the  governor  would  be  the  re- 
quirement that  members  of  the  commission  should  be  trained  experienced 
employment  managers. 

The  commission  performs  legislative,  judicial  and  administrative 
functions.  The  legislative  function  is  to  formulate  rules  and  regulations 
which  should  have  the  force  of  law.  The  judicial  functions  relate  to 
appeals  from  rules  of  department  heads  and  for  discharges  after  charges 
have  been  filed.     The  administrative  functions  are  to  hold  competitive 


38  REPORT  OF  JOINT  LEGISLATIVE    COMMITTEE 

qualifying  examinations  for  determining  eligibility  for  appointment;  to 
establish  such  eligible  lists;  to  make  certifications  from  eligible  lists  to  fill 
vacancies;  to  see  that  appointments  are  made  from  such  lists  duly  certi- 
fied; if  no  list  exists  to  authorize  temporary  appointment;  to  keep  records 
of  service  on  all  employees ;  to  control  promotional  prcedure  and  to  check 
all  pay  rolls  relative  to  the  legality  of  the  appointment. 

These  administrative  functions  would  be  performed  by  one  man 
much  more  efficiently  than  by  a  commission.  Such  a  man  would  be 
chosen  because  of  his  familiarity  with  the  needs  of  the  public  service, 
because  of  his  knowledge  of  employment  methods  and  technique  of  ex- 
aminations, because  of  his  knowledge  of  service  records  and  efficiency 
ratings,  and  because  of  his  familiarity  with  the  problems  of  departmental 
organization. 

For  performing  the  legislative  and  judicial  functions  the  aid  of  a 
personnel  board  might  be  provided,  composed  of  the  heads  of  some  of  the 
major  departments.  Such  a  connection  between  department  heads  and 
the  administrative  head  of  the  civil  service  work  would  be  valuable  in 
many  ways,  especially  in  the  work  of  drafting  specifications,  in  devising 
efficiency  rating  methods  and  in  creating  a  sense  of  obligation  on  the  part 
of  all  public  employees  to  comply  with  the  civil  service  laws  of  the  state. 
It  may  well  be  questioned  if  the  detached  position  of  the  civil  service  com- 
mission and  its  lack  of  contact  with  the  several  departments  except  when 
a  crisis  arises  is  not  one  of  the  causes  for  the  friction  and  misunder- 
standing which  so  often  arises  between  the  civil  service  commission  and 
the  department. 

It  is  therefore  recommended  that  a  single  civil  service  commis- 
sioner be  appointed  by  the  governor,  to  serve  at  his  pleasure  to  re- 
place the  present  commission  of  two  members  appointed  by  the 
governor  for  terms  of  two  years  each.  That  the  law  specify  that 
this  person  shall  have  knowledge  and  experience  in  employment 
methods  and  personnel  management.  That  a  personnel  board  be  cre- 
ated, composed  of  department  heads  or  their  representatives  to  co- 
operate with  the  civil  service  commissioner  in  the  performance  of 
the  quasi-legislative  and  quasi-judicial  functions. 

The  state  of  Maryland  in  its  recently  enacted  "Merit  Law"  provides 
for  a  single  state  employment  commissioner  to  be  appointed  by  the  gov- 
ernor for  a  term  of  six  years  at  a  salary  of  $5000  per  annum. 

An  alternative  recommendation  is  that  there  be  at  the  head  of  the 
department  of  civil  service  a  chairman  appointed  by  the  governor  who 
would  receive  an  adequate  salary  and  be  responsible  for  the  administra- 
tive work.  Two  other  additional  commissioners  would  be  appointed  b\ 
the  governor  on  a  part  time  basis,  who  with  the  chairman  would  consti- 
tute a  board  to  pass  on  quasi-legislative  and  (|uasi-judicial  matters. 
These  two  additional  commissioners  would  receive  nominal  salaries  and 
traveling  expenses. 


OFFICE  OF  THE  GOVERNOR 

By  DON  C.  SOWERS, 


According  to  the  Constitution  the  executive  department  of  the  state 
consists  of  a  governor,  Heutenant-governor,  secretary  of  state,  auditor 
of  state,  treasurer  of  state  and  attorney  general,  all  of  whom  are  elected 
by  the  people.  All  the  above  officers  are  elected  for  two  years  except  the 
auditor,  who  is  elected  for  four  years  (Article  III,  Section  2).  The 
supreme  executive  power  of  the  state  is  vested  in  the  governor  (Section 
5). 

POWERS    AND    DUTIES 

The  powers  and  duties  of  the  governor  may  be  classified  with  respect 
to  the  following  subjects: 

1.  Legislature. 

2.  Other  executive  officers. 

3.  Military  affairs. 

4.  Commissioning  of  notaries  and  commissioners. 

5.  Granting  reprieves  and  pardons. 

6.  Administrative  officials.. 

7.  Ex-officio  boards  and  commissions. 

RELATION    OF    GOVERNOR    TO    LEGISLATURE  '  .      . 

The  governor  is  required  to  transmit  a  message  to  the  General 
Assembly.  He  may  call  a  special  session  of  the  legislature  and  may 
adjourn  the  General  Assembly  in  case  of  disagreement.  At  least  five 
days  preceding  each  regular  session  of  the  General  Assembly  the  other 
executive  officers  are  required  to  submit  reports  to  the  governor,  who 
in  turn  transmits  these  reports  with  his  report  to  the  legislature. 

DUTIES    WITH    RESPECT    TO    OTHER    EXECUTIVE    OFFICERS 

The  governor  may  require  information  in  writing  from  the  officers 
of  the  other  executive  departments  upon  any  subject  relating  to  the 
duties  of  their  office.  He  shall  fill  vacancies  in  the  office  of  auditor, 
treasurer,  attorney  general  and  secretary  of  state  and  receive  and  trans- 
mit their  reports.  A  semi-annual  report  of  the  proceedings  of  the  sink- 
ing fund  commissioners  is  required  to  be  made  to  the  governor  and  to 
be  published.     (Article  VITT.  Section  11). 

39 


40  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

MILITARY    AFFAIRS 

The  governor  is  commander-in-chief  of  the  military  and  naval  forces, 
lie  appoints  the  adjutant  general  and  such  other  staff  officers  as  may  be 
provided  l)v  law  and  commissions  all  officers  of  line  and  staff.  He  has 
power  to  call  forth  the  militia  to  execute  the  laws  of  the  state  to  sup- 
press insurrection  and  repel  invasion. 

COMMISSIONING    NOTARIES    AND    COMMISSIONERS 

The  governor  must  sign  all  grants  and  commissions  issued  in  the 
name  of  the  state  and  these  are  countersigned  by  the  secretary  of  state. 
Notaries  public  and  commissioners  for  the  state  of  Ohio  are  appointed 
for  terms  of  three  years.  The  former  pay  fees  of  one  dollar  and  the 
latter  fees  of  three  dollars. 

Each  judge  of  the  court  of  record,  state  officer,  county  officer,  militia 
officer  and  justices  of  the  peace  must  receive  a  commission  from  the 
governor  to  fill  such  office.  Justices  of  the  peace  pay  two  dollars  and 
all  other  officers  pay  five  dollars. 

GRANTS,    REPRIEVES    AND    PARDONS 

The  governor  may  grant  reprieves,  commutations  and  pardons  for 
all  crimes  and  offenses  except  treason  and  cases  of  impeachment  and 
must  report  to  the  General  Assembly  detailed  facts  regarding  each  case. 
To  assist  the  governor  in  performing  these  duties  a  board  of  clemency 
has  been  created.     (See  Report  on  Board  of  Clemency.) 

DUTIES    WITH    RESPECT    TO    ADMINISTRATIVE    DEPARTMENTS 

The  administrative  departments  of  the  state  government  consist 
of  six  single  elective  officers  and  forty  officials,  boards  or  commissions 
who  are  all  appointed  by  the  governor.  The  governor  appoints  four- 
teen single  appointive  officials  of  whom  eight  are  appointed  with  the 
consent  of  the  Senate  and  six  are  appointed  without  confirmation  of 
the  Senate.  He  also  appoints  the  members  of  28  boards  and  commis- 
sions ranging  in  size  from  2  up  to  10  members;  two  boards  or  commis- 
sions have  2  members  each  ;  seven  boards  or  commissions  have  3  mem- 
bers each  ;  one  board  is  composed  of  4  members  ;  six  boards  are  com- 
posed of  5  members  each  ;  two  boards  arc  composed  of  7  members  each, 
one  board  of  8  members  and  one  l)oar(l  of  10  members.  13  of  these 
boards  and  commissions  are  api)oinle(l  1)\  the  go\ernor  without  the  con- 
firmation of  the  Senate  and  thf  remainder  re(|uire  the  confirmation  of 
the  Senate.  In  addition  he  appoints  the  trustees  of  the  two  normal 
schools,  Bowling  Green  and  Kent,  the  trustees  of  three  state  universities, 
of  Wilberforce  University  and  of  the  Ohio  Soldiers'  and  Sailors'  Or- 
])hans'  Home.  While  the  members  of  many  of  thesi'  boards  and  com- 
missions have  over-lap]~)ing  terms,   if   we  assume  that  at  least  one  new 


ON   ADMINISTRATIVE  REORGANIZATION  4^ 

member  is  appointed  by  each  governor,  it  means  that  each  governor 
has  to  appoint  no  less  than  forty-two  administrative  officials.  It  is  a 
physical  impossibility  for  the  governor  to  exercise  supervision  and  con- 
trol over  this  large  number  of  independent  and  unrelated  departments 
of  government.  It  is  unfair  to  the  governor  and  to  the  people  of  the 
state  to  expect  any  person  to  do  the  impossible.  If  the  governor  is  to 
be  made  responsible  for  the  administration  of  state  affairs  the  organiza- 
tion of  the  state  should  be  simplified  and  the  number  of  boards  and 
commissions  reduced  in  order  to  make  this  possible. 

EX-OFFICIO   BOAIiDS   AND   COMMISSIONS 

The  governor  is  an  ex-officio  member  of  the  following  boards  and 
commissions:  Board  of  control,  emergency  board,  board  of  state 
charities,  state  building  commission,  and  coiiimission  appointed  to 
select  site  and  erect  a  building  for  deformed  and  crippled  children.  He 
is  also  trustee  ex-officio  of  the  archaeological  and  historical  society  and 
he  appoints  six  trustees.     Nine  trustees  are  elected  by  the  society. 

From  time  to  time  special  commissions  are  appointed  to  accomplish 
specific  things  and  it  usually  devolves  upon  the  governor  to  appoint  the 
members  of   such  commissions. 

PERSONNEL   OF   THE   DEPARTMENT 

The  governor  receives  a  salary  of  $10,000  a  year.  The  work  of 
his  office  is  carried  on  by  a  secretary,  executive  clerk,  correspondence 
clerk,  commission  clerk,  stenographer  and  messenger.  The  total  appro- 
priation is  $38,475. 

The  budget  commissioner  is  appointed  by  the  governor  and  works 
in  close  cooperation  with  him-  in  the  preparation  of  the  biennial  budget. 
At  present  the  office  of  budget  commissioner  is  the  only  agency  which 
the  governor  has  for  keeping  in  touch  with  the  activities  of  the  various 
departments  except  through  the  filing  of  the  annual  reports  of  the  several 
departments.  The  governor  should  have  sufficient  assistance  to  enable 
him  to  obtain  first  hand  information  regarding  the  current  operation  of 
each  department  and  should  have  at  hand  the  means  for  making  special 
studies  and  investigations  whenever  he  deems  it  desirable. 

RECOMMENDATIONS 
It  is  recommended  — 

That  the  governor  be  elected  for  a  term  of  four  years. 

Two  years  is  too  short  a  time  for  a  governor  to  become  familiar 
with  the  duties  of  his  office  and  to  build  up  the  necessary  organization 
for  accompHshing  results.  To  accomplish  this  change  a  constitutional 
amendment  will  be  necessary. 


42 


REPORT  OF    TOINT  LEGISLATIVE   COMMITTEE 


That  there  be  established  in  the  Governor's  Office  a  Bureau 
of  Research  and  Investigation. 

Tlie  purpose  of  this  l)ureau  would  be  to  make  studies  and  investiga- 
tions of  the  operations  of  the  various  state  departments  and  to  make 
special  investigations  and  report  their  findings  to  the  governor.  In  no 
other  way  will  it  be  possible  for  the  governor  to  have  the  information 
which  is  necessary  for  exercising  control  and  supervision  over  state 
departments.  This  bureau  might  also  be  charged  with  the  duties  of  edit- 
ing the  reports  of  the  various  departments  which  are  submitted  annually 
to  the  governor. 

That  the  Board  of  Clemency  be  retained  as  at  present. 
That  the  Budget  Commissioner  be  retained  as  at  present. 

The  budget  commissioner  sli(juld  report  directly  to  the  governor 
since  the  governor  is  directly  responsible  for  the  formulation  of  the 
annual  budget  and  work  program.  An  adequate  budget  stafif  should  be 
employed  to  keep  the  governor  informed  of  actual  operating  conditions 
in  the   several  departments. 


THE  BUDGET  COMMISSIONER 

Prepared  Under  Direction  of 

DR.  L.  D.  UPSON, 

By  C.  E.  RIGHTOR 


The  survey  of  the  office  of  the  budget  commissioner  was  made 
through  interviews  with  the  budget  commissioner  and  his  two  assistants, 
and  with  other  pubHc  officers,  and  by  examination  of  the  statutes  affect- 
ing the  office,  and  of  the  budgetary  documents  that  have  been  prepared 
for  the  biennial  periods  since  1915.  The  correspondence  received  by  the 
committee  relative  to  budget  procedure  has  been  reviewed  carefully. 

PURPOSE  OF   BUDGET 

In  Ohio,  the  general  assembly,  as  the  direct  representatives  of  the 
people,  determine  what  functions  shall  be  undertaken  by  the  state ;  how 
much  these  public  services  and  improvements  shall  cost;  and  how  that 
cost  shall  be  financed.  It  is  also  their  function  to  provide  the  funds  for 
getting  these  things  done.  After  the  legislative  body  has  acted  in  these 
respects,  it  is  incumbent  upon  the  executive  and  administrative  depart- 
ments to  carry  into  efifect  the  popular  will  as  decreed  by  the  general 
assembly. 

The  budget  may  be  deemed  to  be  that  instrument  which  will  enable 
the  offi<cial  representatives  of  all  of  the  people  of  the  state  to  determine 
fully  and  intelligently  what  activities  the  state  shall  undertake,  how  much 
these  activities  shall  cost,  and  how  that  cost  shall  be  financed.  This  is 
the  fundamental  aim  of  a  state  budget.  Common  acceptance  of  the 
phase  "budget  system"  includes  the  consideration  by  the  legislature  of  this 
informative  document  and  its  ratification  through . enactment  of  a  budget 
or  appropriation  bill,  authorizing  the  expenditure  of  specific  funds  under 
certain  legal  limitations;  it  includes  also  provisions  made  for  audit  of 
financial  activities,  to  assure  that  the  conditions  set  forth  by  the  legisla- 
ture are  complied  with  by  the  executive  and  administrative  officers.  In 
final  analysis,  it  will  be  seen  that  the  budget  procedure  of  any  government 
is  so  deep-rooted  that  it  affects,  or  is  affected  by,  every  feature  of  the 
structural  organization  and  the  administrative  processes  of  that  govern- 
ment. 

ESTABLISHMENT  OF   BUDGET  PROCEDURE  IN  OHIO 

By  provisions  of  an  act  passed  by  the  general  assembly  of  Ohio 
in  1913,  a  budget  system  for  state  officers,  departments  and  institutions 

43 


44  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

was  established.  In  conformance  with  this  law,  the  first  budget  in  the 
state  was  prepared  for  the  biennial  period  beginning  July  i,  191 3.  A 
copy  of  the  budget  prepared  for  that  fiscal  period  was  not  available  for 
review,  but  is  not  considered  essential  to  this  report. 

The  budget  law  calls  for  the  submission,  on  or  before  the  15th  day 
of  November  biennially,  in  the  even  numbered  years,  by  the  several  de- 
partments, institutions,  commissions,  and  officers  of  the  state,  of  an 
estimate  in  itemized  form,  to  the  governor,  stating  the  amount  of  money 
needed  for  their  wants  for  the  biennial  period  beginning  with  the  first 
day  of  July  thereafter. 

It  provides  that,  on  or  before  the  15111  day  of  November,  biennially 
in  the  even  numbered  years,  the  auditor  of  state  shall  furnish  to  the 
governor  statements  of  the  balances  standing  to  the  credit  of  the  several 
appropriations  at  the  end  of  the  last  fiscal  year,  monthly  revenues  and 
expenditures  from  each  appropriation,  annual  revenues  and  expenditures, 
and  the  monthly  average  of  such  expenditures. 

The  act  further  provides  that  all  officers  shall  furnish  the  governor 
with  information  desired  in  relation  to  the  afifairs  of  the  office,  etc. 

The  governor  is  required  to  submit  toi  the  general  assembly,  at  the 
beginning  of  each  regular  session,  together  with  the  departmental  esti- 
mates, his  budget  of  current  expenses  of  the  state  for  the  ensuing 
biennium.  Under  section  5  of  the  act,  the  governor  is  empowered  to  ap- 
point persons  to  examine  the  affairs  of  any  office,  etc.,  and  to  make  find- 
ings and  recommendations-  relative  to  increasing  the  efficiency  and  cur- 
tailing the  expense  therein. 

To  enable  the  governor  to  carry  out  the  provisions  of  this  act,  the 
office  of  budget  commissioner  was  created.  The  budget  commissioner  is 
appointed  by  the  governor,  to  serve  at  his  pleasure,  and  the  office  is  a 
separate  department  of  the  governor's  office.  The  position  was  created 
in  1913,  and  four  commissioners  have  served  since  then.  The  present 
budget  commissioner  was  appointed  in  September,  1919.  An  assistant 
and  a  secretary  have  been  appointed  to  assist  in  the  performance  of  the 
duties  of  the  office. 

Four  budgets,  each  covering  a  biennial  period,  have  been  compiled 
by  this  office,  two  by  one  commissioner,  and  two  by  another.  One  com- 
missioner aided  on  the  second  budget,  while  the  latest  commissioner  has 
prepared  none.  It  should  be  noted  in  this  connection  that  Ohio  was  one 
of  the  first  states  to  enact  budgetary  legislation,  and  accordingly  has 
compiled  a  greater  number  of  budgets  than  any  other  state,  with  two  or 
three  exceptions.  The  adoption  of  budget  laws  by  states  is  only  a  recent 
movement,  but  now  over  two-thirds  of  the  states  have  laws  on  the 
subject. 

GENERAL  COMMENT 

An  extensive  bibliography  is  easily  available  to  anyone  desiring  in- 
formation on  the  subject  of  budgets,  not  only  for  states,  but  for  the  Fed- 


ON    ADMINISTRATIVE    REORGANIZATION  45 

eral  Government,  cities  and  counties.  Even  now  this  mass  of  literature 
is  being  augmented,  some  with  special  reference  to  the  Ohio  state  budget 
procedure. 

For  the  purpose  of  a  reorganization  study  and  plan  for  the  state 
of  Ohio,  however,  it  is  deemed  unnecessary  to  attempt  a  searching  and 
replete  disquisition  upon  all  the  theories  and  phases  of  budget  making.  So 
far  as  the  general  principles  and  procedure  relating  to  budgets  are  ap- 
plicable to  the  findings  and  recommendations  contained  in  this  report, 
they  will  be  indicated  in  conjunction  with  the  text. 

Comment  is  heard  locally  that  the  state  of  Ohio  has  not  in  fact  a 
"budget", — that  the  methods  followed  result  only  in  a  make-shift,  a  half- 
way budget.  A  supplementary  report  printed  for  the  Select  Committee  on 
Budget  of  the  House  of  Representatives,  entitled  "State  Budget  Systems" 
(Government  Printing  Office,  1919)  presents  a  "Digest  of  Budgetarv 
Legislation"  in  the  states.  Nineteen  states  are  enumerated  as  having 
budgets.  Under  the  title  "Consolidated  Estimate  Plans"  the  budgetarv 
procedure  of  23  states  is  reviewed.     Ohio  is  included  in  the  latter  class. 

Review  of  the  act  passed  in  1913  discloses  that  the  end  sought  was 
an  effective  budget,  and  that  at  the  time  of  its  passage  the  act  was  a 
distinctively  progressive  movement.  Budget  making  is  not  a  fixed  science, 
or  art.  In  all  our  governm.ental  divisions  it  is  in  a  stage  of  experimenta- 
tion and  development.  Conception  of  what  a  budget  should  be  is-  con- 
tinually changing,  and  governments  are  profiting  by  observing  results  of 
existing  procedures.  The  \ery  definition  of  budget  is  under  discussion, 
and  the  several  states  in  adopting  laws  on  the  subject  have  fixed  their 
own  definition  of  the  term.  Individual  interpretation  of  the  term  per- 
mits each  one  to  determine  for  his  discussion  what  shall  be  the  form  and 
content,  and  the  procedure  as  to  time  and  manner  of  presentation,  the 
consideration  and  action  by  the  legislative  body,  and  the  means  of  its 
execution. 

It  may  be  concluded  that,  by  statutory  definition,  Ohio  has  in 
fact  a  budget.  The  statute  of  1913  has  remained  on  the  books  un- 
changed, and  experience  since  then  has  indicated  fnarked  improve- 
ments and  refinements  in  procedure.  Because  Ohio  took  an  early 
initiative  in  adopting  a  budget  law,  it  may  be  assumed  that  she  w^ill 
readily  avail  herself  of  the  advances  in  the  processes  which  have 
been  given  general  recognition  by  several  states.  In  large  measure 
these  refinements  may  be  accomplished  through  legislative  amend- 
ment and  revision  of  administrative  procedure.  Legislation  will  not 
accomplish  everything,  however.  The  personal  interest,  earnestness 
and  intelligent  effort  which  a  governor  and  the  members  of  a  general 
assembly  apply  to  the  budget  cannot  be  regulated  by  constitution 
or  statute.  Only  genuine  and  impersonal  interest  in  the  welfare  of 
the  state  can  govern  the  public  officers  in  preparing  and  considering 
the  budget  plans.     What  is  needed  in  Ohio  is  not  endless  legislation, 


46  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

but  leadership  in  budget  making.  Fortunately,  there  is  no  sign  of 
retrogression ;  it  is  difficult  to  conceive  of  the  modern  state  operating 
without  a  scientific  budget,  and  already  Ohio  has  made  progress  since 
the  law  was  passed. 

NEED   FOR    CONSTITUTIONAL    PROVISIONS 

One  of  the  causes  that  prompted  the  general  assembly  of  Ohio  to  in- 
quire into  the  possibility  of  organization  of  the  state  government  was, 
undoubtedly,  recognition  of  the  fact  that  the  administrative  branch  of 
the  government  is  a  disintegrated  type  of  organization,  consisting  of  a 
large  number  of  practically  independent  services.  Only  to  a  limited  extent 
has  the  governor  any  positive  powers  of  direction  and  control.  As  the 
activities  undertaken  by  our  state  governments  become  more  numerous 
and  complex,  and  in  many  cases  similar  to  those  performed  by  private 
business,  the  same  standards  of  efTijciency  and  economy  are  demanded  as 
obtain  in  private  corporations.  Results  can  be  attained  only  through 
a  form  of  organization  similar  to  that  found  essential  in  the  business 
world,  and  which  recognizes  a  central  line  of  authority  and  super"ision 
over  the  agencies  and  methods  of  administration. 

Accordingly,  in  the  proposed  reorganization  plans,  the  governor 
is  given  a  greater  power  of  control  over  and  is  made  the  head  of  a 
strongly  centralized  administrative  organization.  While  the  prevailing 
tendency  of  the  citizens  of  a  state  is  to  hold  the  governor  responsible  for 
the  kind  of  public  service  the  state  departments  render,  yet  they  seem  to 
ignore  the  fact  that  the  governor  lacks  authority  to  get  the  best  and  most 
economical  results.  This  condition  is  remedied  in  the  realignment  of 
authority,  and  it  is  sought  to  make  it  possible  to  plan  and  obtain  effective 
results  through  a  modern  budget  procedure. 

With  the  centralization  of  administrative  authority,  it  becomes  im- 
perative that  the  legislature  maintain  its  directive  function  and  that  the 
people  safeguard  their  rights  of  making  public  decisions.  The  budget  is 
of  genuine  concern  to  all  the  citizens,  as  the  popular  will  cannot  be 
formulated  and  expressed  fully  and  intelligently  without  adequate  budget 
methods.  It  is  imperative  that  there  should  exist  the  means  for  carrying 
out  the  general  will  and  control  in  respect  to  those  duties  and  activities 
of  mutual  concern  to  all  the  citizens,  and  that  the  method  have  the  con- 
fidence and  endorsement  of  at  least  a  majority  of  the  citizens  of  the  state. 
To  guarantee  to  the  people  their  privilege  and  responsibility,  it  is  be- 
lieved that  the  basic  law  of  the  state  should  make  provision  for  the  con- 
duct of  governmental  affairs  by  a  process  which  will  guarantee  the  ex- 
ercise of  the  popular  will  and  control. 

It  is  recommended,  therefore,  that  the  state  constitution  be  amended 
to  include  provision  for  a  budget  system.  The  essential  elements  of  such 
a  system,  which  it  is  believed  should  be  incorporated  in  a  constitutional 
amendment,  are : 


ON   ADMINISTRATIVE  REORGANIZATION  47 

X That  the  governor  be  made  responsible  for  securing  re- 
quests for  proposed  expenditures  from  responsible  officers 
of  all  state  agencies;  also  estimates  of  all  anticipated  reve- 
nues. 

2 That  the  governor  be  required  to  review  all  requests  for 

expenditures,  and  with  the  counsel  of  his  administrative 
officers  prepare  a  complete  plan  of  proposed  expenditures. 

3  —  That  the  plan  of  expenditures  be  coordinated  by  the  gov- 

ernor with  the  estimate  of  revenues. 

4  —  That  the  governor  have  a  permanent  staff  agency  to  assist 

him  in  the  collection  and  preparation  of  the  budget  data. 

5 That  the  governor  be  required  to  hold  public  hearings  on 

the  tentative  budget  before  its  presentation  to  the  legisla- 
ture. 

6 That  the  governor's  plan  or  budget  be  submitted  to  the 

legislative  body  early  in  its  regular  session. 

7  — That  the  general  assembly  be  required  immediately   and 

openly  to  consider  the  governor's  budget  by  a  joint  com- 
mittee of  the  house  and  senate;  that  the  chief  executive 
and  other  executive  officers  be  available  to  explain  their  re- 
quests; and  that  the  general  assembly  provide  for  public 
hearings  on  the  budget  prior  to  its  passage. 

8  —  That    a    consolidated    appropriation    bill    accompany    the 

budget. 

9  —  That  the  legislature  be  not  permitted  to  pass  any  appropri- 

ation bill,  except  in  case  of  emergency  upon  recommenda- 
tion of  the  governor,  until  the  entire  budgetary  plan  for 
the  state  is  acted  upon. 

I  o  — That  the  legislature  be  permitted  to  reduce  or  strike  out 

items  of  the  governor's  proposed  budget,  and  be  permitted 
to  add  to  the  proposed  expenditures  only  provided  the 
necessary  revenues  are  provided  by  them. 

I I  —  That  the  governor  be  given  authority  to  supervise  the  ex- 

penditure of  all  appropriations,  and  report  to  the  general 
assembly  transfers  and  changes  in  the  items  of  appropri- 
ation. 

The  details  in  procedure  required  to  make  these  provisions  effec- 
tive may  be  secured  through  legislation,  and  need  not  be  incorporated  in 
the  constitution. 

PRINCIPLE    OF   THE    EXECUTIVE   BUDGET 

It  will  be  noted  that  in  these  provisions  the  governor  is  given  large 
responsibiHties.  This,  it  is  believed,  is  in  accord  with  the  present  tend- 
ency in  all  state  governments. 


48  REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 

By  Statute,  the  requests  of  all  departments  are  submitted  to  the  gov- 
ernor, who  transmits  them  to  the  general  assembly  together  with  his 
"budget  of  current  expenses  of  the  state  for  the  biennial  period".  Thus 
Ohio,  in  general  terms  at  least,  has  adopted  the  principle  of  the  "execu- 
tive" budget.  —  i.  e.,  the  principle  of  empowering  the  chief  executive  to 
bring  together  and  propose  in  one  comprehensive  plan  the  activities  to  be 
conducted  by  the  state,  and  to  prepare  a  financial  statement  showing  their 
cost  and  the  manner  of  raising  the  necessary  revenue.  In  practice,  it 
may  be  that  the  governor  finds  it  impossible  to  realize  fully  upon  this 
principle,  owing  to  the  independent  authority  of  some  administrative 
agencies.  It  would  seem,  from  the  budget  law,  that  the  governor  is 
authorized  to  revise  requests  as  well  as  review  them.  Certain  it  is,  that 
the  intent  of  the  law  was  not  to  place  with  any  other  state  agency  the 
duty  of  preparing  a  complete  plan  of  state  activities,  —  as  is  provided  in 
the  case  of  the  so-called  "legislative"  budget,  compiled  by  a  legislative 
committee  or  other  officer  under  its  direction.  The  general  practice 
in  our  states  is  to  place  this  responsibility  with  the  governor,  and  as  Ohio 
has  long  since  established  this  method,  no  argument  for  its  continuance 
need)  be  broached. 

THE  governor's  RELATION  TO  THE  BUDGET 

The  most  important  duty  of  the  governor  is  that  of  preparing  the 
budget,  involving  as  it  does  the  future  work  and  development  of  ever>- 
department  of  the  state  government  for  two  years,  and  the  document 
deserves  his  closest  personal  attention. 

CONFERENCE    SHOULD    BE    HAD    WITH    HIS    ADMINISTRATIVE    OFFICERS. 

It  is  essential  that  assistants  perform  some  phases  of  its  preparation, 
and  this  is  provided  by  statute.  In  its  presentation  to  the  general  as- 
sembly, the  governor  should  be  prepared  and  be  required  to  support  his 
recommendations  before  the  legislature.  At  the  present  time  the  budget 
carries  no  extensive  comment  by  the  governor,  and  it  is  not  the  custom 
of  the  legislature  to  call  upon  him  in  person  to  explain  his  budget  plans. 
It  is  believed  an  adequate  procedure  should  include  such  demands. 

Provision  should  also  be  made  that  the  governor-elect  shall  be  en- 
abled to  participate  in  the  formulation  of  the  budget.  With  a  two-year 
term  of  governor,  the  reasons  for  this  recommendation  are  manifest. 

LEGISL.\TIVK    CONSIDERATION 

The  effectiveness  of  the  budget  procedure  depends  to  no  small  degree 
upon  the  consideration  given  it  by  the  general  assembly.  It  seems  to  be 
the  desire  of  the  members  of  the  legislature  that  the  information  relative 
to  the  state's  undertakings  be  submitted  in  great  detail,  showing  for  each 
otifice,  institution,  etc.,  just  what  positions  exist,  each  salar>',  and  the 
quantity  and  cost  of  each  kind  of  supplies,  etc.,  wanted. 


ON   ADMINISTRATIVE  REORGANIZATION  49 

No  legislative  body,  or  committee  of  the  general  assembly,  can  con- 
sider and  act  intelligently  upon  public  problems  by  such  procedure.  The 
time  available  to  them  is  too  brief,  and  they  become  lost  in  a  mass  of 
details,  overlooking  the  broader  phases  of  the  state's  affairs.  The  general 
assembly  should  concern  themselves  with  policies,  activities,  public  im- 
provements, and  total  costs,  rather  than  with  positions,  unit  quantities, 
and  items  of  appropriation.  They  should  consider  the  budget  in  terms  of 
activities  or  services,  —  the  necessity  for  their  being  undertaken,  their 
extent,  and  the  justifiable  expense  for  them  when  compared  with  other 
jMDSsible  uses  of  state  funds. 

This  approach,  it  will  be  appreciated,  is  different  from  that  which 
attempts  to  determine  for  any  office,  department  or  institution  how  many 
people  shall  be  employed  and  what  the  salary  shall  be,  and  how  much 
of  each  kind  of  supplies,  materials,  or  equipment,  will  be  necessary  dur- 
ing the  next  two  years.  One  point  of  view  considers  the  demands  and 
desires  of  the  people  as  to  the  services  to  be  undertaken  by  the  state; 
the  other  considers  only  how  many  jobs  can  be  filled  or  contracts  for 
supplies  secured  for  friends.  It  is  believed  that  the  adoption  by  the 
general  assembly  of  the  activity  or  service  as  the  unit  for  consideration, 
and  even  of  appropriation,  would  strengthen  the  members  in  performing 
their  duties  as  representatives  of  six  million  individuals. 

Complete  and  understandable  summary  tables  should  be  presented 
in  the  front  pages  of  the  budget  by  the  governor,  —  one  showing,  for  each 
organization  unit  and  activity,  the  requested  appropriation  for  the  two- 
year  period ;  another  showing,  in  detail  by  sources  of  income,  how  it  is 
proposed  to  finance  these  requests.  These  two  sets  of  outstanding  figures 
may  then  be  grasped  by  the  general  assembly,  and  with  executive  ex- 
planation, that  body  can  determine  policies  and  appropriate  funds  for 
their  execution. 

They  may  safely  and  judiciously  leave  to  the  governor  the  details 
as  to  the  itemized  requests  for  personal  services  and  goods,  as  the  chief 
executive  is  charged  with  carrying  out  their  policies  in  the  most  eco- 
nomical, expedite  and  effective  manner,  and  to  do  this  must  carefully  pre- 
pare the  items  comprising  his  recommendation.  It  is  not  intended  that  the 
legislature  shall  surrender  any  of  its  rights  by  the  recommended  pro- 
cedure. For  instance,  it  is  contemplated  that  a  salary  schedule  accompany 
the  budget,  setting  forth  each  position  in  the  state  service  and  fixing 
a  standard  rate  of  compensation  for  each  grade  of  service. 

UNIT  OF  APPROPRIATION 

The  unit  of  appropriation  in  the  procedure  now  followed  is  the 
object  of  expenditure  detailed  in  accordance  with  the  classification 
established  by  the  budget  commissioner.  This  classification  is  not  identical 
with  that  followed  by  the  auditor  of  state  in  his  accounting  records, 

4 


50  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

although  it  is  beHeved  that  the  auditor  (director  of  finance  under  the 
proposed  reorganization)  should  be  empowered  to  establish  uniform 
classifications,  both  of  income  and  expenditures,  for  adoption  and  use  by 
all  state  departments.  Budget  requests  should  be  prepared  by  depart- 
ments in  conformity  with  such  classifications,  detailed  as  necessary  to 
support  the  requests. 

As  has  been  suggested,  the  general  assembly  should  consider  activ- 
ities rather  than  items  of  the  budget,  so  it  is  believed  the  legislative  body 
should  adopt  the  activity,  —  or  specific  service  performed  —  as  the  unit 
of  appropriation.  Adoption  of  this  suggestion  would  reduce  the  size  of 
the  budget  and  the  appropriation  bill,  and  require  less  detail  to  appro- 
priation accounting  records.  The  basis  of  the  recommendation  has  been 
stated  under  the  preceding  caption  —  that  the  general  assembly  cannot 
satisfactorily  or  even  intelligently,  in  the  short  time  allotted  for  this 
important  task,  determine  upon  the  necessity  of  either  the  personal  serv- 
ices, supplies  and  other  items  which  may  be  required  to  get  done  the 
services  they  have  authorized.  These  must  remain  details  properly  to 
be  considered  by  the  administrative  officers.  The  soundness  of  these 
observ'ations  is  emphasized  when  it  is  reflected  that  the  detailed  sheets 
requesting  personal  services,  materials,  equipment,  etc.,  are  prepared  by 
departments  thirty  or  more  months  prior  to  the  time  the  legislative  pro- 
gram must  be  carried  out.  With  fluctuating  market  conditions,  the  task 
imposed  to  determine  unit  quantities  becomes  almost  guesswork  in  many 
cases. 

REQUESTS   FOR  EXPENDITURES 

A  budget  consists  of  two  sections,  —  the  requests  for  expenditures, 
and  the  estimated  revenues  to  meet  them. 

By  statute,  the  requests  are  to  be  submitted  on  or  before  the  15th 
day  of  November,  biennially  in  the  even  numbered  years,  severally  by 
the  departments,  institutions,  commissions  and  officers  of  the  state,  on 
blanks  furnished  them,  the  estimates  being  submitted  in  itemized  form 
to  the  governor,  stating  the  amount  of  money  needed  for  their  wants  for 
the  ensuing  biennial  period.  The  governor  submits  these  departmental 
requests,  together  with  his  estimate  of  the  current  expenses  of  the  state 
for  the  same  period  to  the  general  assembly  at  the  beginning  of  each 
regular  session. 

These  are  the  only  provisions  of  the  law  relative  to  the  requests 
for  expenditures.  It  may  be  assumed  that  the  present  form  of  budget, 
as  to  nature  of  requests,  and  arrangement  of  the  information,  is  that 
determined  upon  by  the  governor  as  best  conforming  to  the  letter  and 
spirit  of  the  law.  In  his  decision  he  has  undoubtedly  had  the  counsel  of 
the  officers  of  the  state,  as  well  as  being  informed  as  to  the  wishes  of  the 
two  houses  of  the  general  assembly  with  respect  to  the  requests. 

It  is  recommended,  in  reference  to  the  requests  for  expenditures, 
that  the  law  provide: 


ON   ADMINISTRATIVE   REORGANIZATION  5 1 

1  —  That  the  governor  shall  furnish  the  request  blanks. 

2  —  That  there  be  one  form  for  requests,  which  form  shall  be 

uniform  and  designate  clearly  the  information  desired,  and 

3  —  That  the  governor  be  required  to  furnish  blanks  to  the  de- 

peurtments,  officers,  etc.,  on  or  before  July  15  in  the  even 
numbered  years. 

It  is  recommended  further  that  the  law  provide  that  requests  for  ex- 
penditures shall  g-ive  a  complete  and  itemized  plan  of  all  proposed  ex- 
penditures for  each  year  of  the  ensuing  biennial  period,  for  each  state 
agency,  classified  by  function,  charter  and  object;  that  opposite  each 
item  of  proposed  expenditure  the  budget  shall  show  in  parallel  columns 
the  amounts  appropriated  for  each  of  the  last  two  preceding  appropria- 
tion years,  and  the  increase  or  decrease. 

It  is  suggested  that  the  director  of  finance  be  required  to  prepare 
and  furnish  the  information  relating  to  past  appropriations,  this  informa- 
tion to  be  entered  on  the  blanks  prior  to  their  distribution  to  the  several 
agencies. 

ESTIMATE   OF   REVENUES 

The  present  law  makes  no  provision  for  an  estimate  of  the  revenues 
and  borrowings  for  the  ensuing  biennial  period. 

It  is  recommended  with  reference  to  estimates  of  revenues  that  the 
law  provide: 

1  —  That  the  governor  shall  furnish  blanks  for  estimates. 

2  —  That  there  be  one  form  for  estimates,  which  form  shall  be 

uniform  and  designate  clearly  the  information  desired. 

3  —  That  the  governor  be  required  to  furnish  blanks  to  the 

agencies  on  or  before  July  15  in  the  even  numbered  years. 

It  is  recommended  further  that  each  state  agency  shall  submit  a 
complete  and  itemized  estimate  of  its  revenues  and  borrowings  for  each 
year  of  the  ensuing  biennial  period ;  that  opposite  each  item  of  estimated 
revenues  and  borrowings  the  budget  shall  show  in  parallel  columns  the 
revenues  for  each  of  the  last  two  preceding  appropriation  years,  and  the 
increase  or  decrease.  It  is  suggested  that  the  director  of  finance  be  re- 
quired to  prepare  and  furnish  the  information  relating  to  past  revenues, 
this  information  to  be  entered  on  the  blanks  prior  to  their  distribution 
to  the  several  state  agencies. 

LIMITING  EXPENDITURES  TO  INCOME 

When  these  two  sets  of  figures  are  received  by  the  governor  and 
tabulated  by  his  budget  assistants,  it  becomes  his  task  to  correlate  the 
two  —  that  is,  to  suggest  the  method  of  financing  the  requests,  and  to 
limit  the  requests  to  the  possible  income.    This  is  one  of  the  most  diffi- 


52  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

cult  problems  in  the  budget  process,  because  it  requires  a  deliberate  con- 
sideration of  all  the  proposed  activities,  and  a  careful  weighing  of  each, 
in  light  of  the  program  of  service  as  a  whole,  to  determine  the  necessity 
and  popular  demand  for  same  and  the  minimum  appropriation  required 
(or  each  of  the  two  ensuing  years. 

This  phase  of  the  procedure  may  be  best  accomplished  through  con- 
ferences held  by  the  governor  with  the  department  officials  when  pre- 
paring their  requests,  in  order  that  he  may  question  them  as  to  their 
plans  and  inform  them  generally  as  to  their  relation  to  the  entire  problem 
of  state  administration  and  finances.  This  practice,  in  addition  to  its  other 
advantages,  should  result  in  more  care  and  thought  being  exercised  by 
officers  in  compiling  requests,  and  reduce  the  tendency  to  "pad"  requests, 
made  unduly  high  because  a  cut  is  anticipated. 

The  resultant  program  should  be  given  wide  publicity  throughout 
the  state,  and  provision  be  made  for  pubHc  hearings,  in  order  that  the 
largest  possible  number  of  taxpayers  and  various  organizations  of  citi- 
zens may  express  themselves  on  the  proposals  both  for  current  operation 
and  public  improvement  projects.  The  govdrnor  will  then  be  able  to 
compile  his  recommendations  in  the  light  not  only  of  the  interested  de- 
partment heads,  but  also  the  trend  of  public  opinion. 

CONTINUOUS  INVESTIGATION  BY  GOVERNOR 

Section  5  of  the  Budget  Act,  in  empowering  the  governor  to  employ 
assistants  to  examine  the  affairs  of  any  department,  contains  commend- 
able provision  for  enabling  the  chief  executive  to  keep  informed  at  all 
times  of  the  exact  condition  of  every  phase  of  state  activity.  Advantage 
should  be  taken  by  the  governor  of  this  section  of  the  law,  to  the  end 
that  he  employ  the  necessary  staff  to  make  such  examinations  and  report 
to  him.  The  budget  commissioner  and  assistants  should  visit  the  de- 
partments, commissions,  and  institutions,  studying  their  method  of  opera- 
tion, and  investigating  first  hand  and  conferring  with  the  proper  officials 
relative  to  future  plans  for  work,  extension  of  service,  and  expenditure 
of  funds. 

In  pasti  years,  appropriations  made  to  the  budget  commissioner  for 
traveling  expenses  have  been  allowed  to  lapse,  to  large  extent,  and  no 
record  was  obtainable  in  his  office  of  visits  made  to  departments,  insti- 
tutions, etc.,  and  what  findings  and  recommendations   resulted. 

It  is  the  express  intention  of  the  present  budget  commissioner  to  take 
full  advantage  of  his  opportimity  to  visit  and  learn  about  each  state 
activity,  as  occasionally  as  time  will  permit,  and  to  confer  with  officials 
as  to  their  plans,  in  order  that  he  may  advise  the  governor  as  to  the  bear- 
ing of  such  plans  upon  the  state  as  a  whole.  Adoption  of  such  steps 
should  reduce  to  a  mininnnu  unnecessary  and  untimely  requests  and  pre- 
vent the  submission  of  incomplete  and  unsound  projects. 


ON   ADMINISTRATIVE   REORGANIZATION  53 

CONSOLIDATED   APPROPRIATION    BILL 

The  next  step  is  the  preparation  of  a  consoHdated  appropriation  bill, 
to  accompany  the  governor's  budget  as  submitted  to  the  general  assembly. 
No  provision  is  made  in  the  present  law  for  such  bill,  but  is  proposed  as  a 
part  of  the  constitutional  amendment.  A  general  bill  is  presented  under 
the  present  procedure,  and  it  is  suggested  that  this  practice  be  continued, 
but  such  bill  should  be  all-inclusive. 

There  is  nothing  to  prevent  members  of  the  general  assembly  from 
introducing  appropriation  bills  independently  of  the  general  bill,  and 
either  prior  or  subsequent  to  it.  It  is  also  the  custom  to  introduce  a 
"Sundry  Claims  Bill",  amounting  to  many  thousands  of  dollars,  inde- 
pendently of  the  budget.  Such  practices  only  vitiate  a  sound  budget  pro- 
cedure, and  in  the  interest  of  the  best  possible  government  for  the  state  the 
legislature  should  demand  the  cessation  of  such  loose  procedure. 

INCREASES   BY   LEGISLATURE 

It  is  a  moot  question  whether  the  legislature  should  be  permitted  to 
increase  the  requests  as  submitted  by  the  governor.  It  is  believed  that  the 
general  assembly,  as  the  policy  determining  body,  and  as  direct  repre- 
sentatives of  the  entire  citizenship  of  the  state,  should  have  this  right. 
However,  should  it  be  determined  by  them  to  extend  any  activity  and 
appropriate  an  additional  amount  therefor,  they  should  indicate  the 
revenue  which  will  be  available  to  meet  the  cost.  Of  course,  it  is  possible 
that  up  to  a  certain  amount  there  will  be  unexpended  balances  available 
for  these  increases. 

REQUESTS  FOR  GENERAL  ASSEMBLY  AND  JUDICIARY 

It  is  a  question  whether  the  requests  of  the  general  assembly  and  the 
judiciary  should  be  included  in  the  governor's  budget,  due  to  the  fact 
that  these  are  coordinate  branches  of  the  government.  To  overcome  this 
difhculty,  it  is  suggested  that  the  itemized  estimates  of  the  financial  needs 
of  the  general  assembly  should  be  certified  by  the  presiding  officer  of  each 
house,  and  of  the  judiciary  should  be  certified  by  the  director  of  finance, 
and  shall  be  transmitted  to  the  governor  before  the  15th  day  of  January 
next  succeeding  for  inclusion  in  the  budget  without  revision  by  him,  but 
with  such  recommendation  as  he  may  deem  proper. 

SUNDRY    CLAIMS 

As  to  the  sundry  claims  bill,  it  is  believed  that  all  of  the  items  con- 
tained therein  should  be  handled  in  a  regular  manner,  and  be  included  in 
the  governor's  budget.  The  items  woitld  thus  require  the  same  considera- 
tion as  other  departmental  requests,  by  a  joint  legislative  committee  on 


54  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

appropriations.  Exception  could  be  made  of  such  items  as  are  really 
emergency,  which  could  be  presented  in  single  appropriation  bills  with  his 
recommendation  on  each. 

EMERGENCIES 

It  is  appreciated  that  in  Ohio,  having  a  biennial  session  of  the 
legislature,  it  becomes  a  difficult  problem  for  the  governor  to  anticipate 
for  thirty  or  more  months  the  amounts  which  may  be  required  to  finance 
the  wide  range  of  activities  undertaken  by  the  state.  The  same  difficulty 
exists  in  all  those  states  having  only  a  biennial  session  and  requiring  an 
adequate  budget  procedure.  There  naturally  will  result  a  necessity  for 
handling  many  items  of  appropriation  as  emergencies.  The  law  provides 
an  emergency  board,  consisting  of  the  governor,  auditor,  attorney  general, 
and  the  chairman  cf  the  two  legislative  finance  committees,  which  is 
authorized  to  determine  upon  emergencies,  requiring  the  expenditure  of 
a  greater  amount  than  has  been  appropriated,  and  to  authorize  the  ex- 
penditure of  money  not  specifically  provided  for  by  law.  This  provision 
is  deemed  an  adequate  one,  and  the  continuance  of  this  board  is  recom- 
mended. 

Consideration  should  be  given  by  the  legislative  body  to  the  feasi- 
bility of  preparing  the  budget  more  nearly  currently,  as  possibly  might 
be  done  through  a  committee  of  the  two  houses. 

TRANSFERS   BETWEEN    ITEMS   OF   APPROPRIATION 

Under  the  conditions  imposed  in  preparing  a  budget  for  a  two-year 
period,  the  question  of  authorizing  transfers  between  items  of  appropria- 
tion becomes  an  important*  one,  and  problems  of  financing  activities  for 
which  adequate  appropriation  was  not  made  must  be  met,  without 
vitiating  the  control  established  by  the  general  assembly. 

If  the  proposal  that  appropriation  by  activities  be  adopted  and 
worked  out,  the  problem  of  transfers  becomes  simple,  as  fewer  requests 
for  transfers  will  be  found  necessary.  Rut  even  then,  unforeseen  circum- 
stances will  aft'ect  some  phases  of  the  service  and  require  additional 
funds.  It  is  believed  that  the  authority  for  an  additional  allowance  to 
any  appropriation  should  be  vested  with  the  emergency  board.  The 
board  of  control  would  not  need  to  be  continued  as  it  is  in  fact  but  an- 
other name  for  the  emergency  board.  Transfers  should  be  authorized  to 
be  made  from  a  contingent  fund,  appropriated  to  that  board,  and  which 
for  Ohio  should  be  a  very  considerable  amount.  Emergency  items  of 
the  several  departments,  bureaus,  etc.,  should  not  obtain.  Under  modern 
conditions  it  is  asking  too  much  for  any  officer  to  anticipate  for  thirty 
or  more  months  his  possible  demands  ujion  the  public  treasun'. 

MONTHLY  BUDGET  OF  EXPENDITURES 

It  is  recommended  that  sections  403-1,  242-1  and  2,  and  243  of  the 
General  Code,  be  annulled.     This  act  provides  that  each  appointive  oflFice 


ON   ADMINISTRATIVE   REORGANIZATION  55 

shall  monthly  submit  "a  detailed  itemized  statement  in  duplicate  of  ex- 
penditures" to  be  made  during  the  next  month.  This  is  reviewed  by  the 
budget  commissioner,  an  allotment  determined  upon  by  him,  and  the 
auditor  and  department  notified  of  the  amount,  and  expenditures  are  sup- 
posed to  be  limited  to  these  monthly  allowances.  Observation  and  in- 
quiry among  several  offices  reveal  that  this  report  is  useless  "red  tape", 
and  only  a  needless  waste  of  time  and  stationery.  The  reports  are 
valueless  for  budgetary'  control. 

SUMMARY  OF  RECOMMENDATIONS 

1  —  That,  in  the  budget  procedure  of  Ohio,  attention  be  directed 

to  applying  accepted  principles  of  budget  making,  both  in 
its  preparation  by  the  governor  and  in  its  consideration  by 
the  general  assembly,  rather  than  to  enacting  legislation 
on  the  subject. 

Leadership  founded  on  Ohio's  general  welfare  is  needed, 
more  than  legislation,  to  obtain  a  maximum  of  results  in  the 
budget  system.  This  leadership  must  be  genuine,  intelligent, 
continuous  and  impersonal. 

2  —  That  the  activity  be  the  unit  of  appropriation,  as  also  of 

preparation  of  departmental  requests  and  of  the  governor's 
recommendations. 

The  present  unit  is  the  position  or  object  of  expenditure, 
except  in  cases  of  capital  outlay  when  the  addition,  structure  or 
improvement  as  a  whole  is  used.  As  the  object  of  the  state 
is  to  serve  the  public,  the  expression  of  any  plan  for  service 
should  be  in  terms  of  the  activities  or  specific  services  to  be 
undertaken. 

The  present  procedure  respecting  permanent  improvements 
should  be  continued. 

3  —  That  the  constitution  be  amended,  to  ensure  to  the  people 

at  all  times  in  the  future  an  adequate  budget  procedure. 

The  Ohio  constitution  contains  no  provision  at  present 
relative  to  the  budget.  What  are  believed  to  be  the  funda- 
mental provisions  of  an  adequate  procedure  are  indicated  in  the 
body  of  the  report.  They  are  designed  to  afford  the  popular 
wiU  protection  against  the  whims  of  all  political  interests  and 
elected  officials. 

4  —  That  the  governor  adopt  a  revised  procedure  in  securing 

departmentad  requests  for  expenditures  amd  estimates  of 


The  proposed  revisions  contemplate  simplified  reporting 
blanks ;  adoption  of  definite  classifications  for  requests  and  ex- 


56  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

penditures;  comparative  statistics  for  study  and  guidance;  con- 
ferences with  administrative  officers;  and  an  ample  time 
schedule  for  the  steps  in  the  compilation  of  the  budget. 

5  —  That  the  governor  submit  to  the  general  assembly  a  com- 

plete program  of  state  activities  and  improvements,  pro- 
posals for  financing  them,  requests  being  coordinated  with 
income,  and  the  governor's  recommendations  concerning 
the  entire  program. 

A  complete  program  of  work  and  the  financial  plan  are 
not  now  available;  the  budget  does  not  contain  recommenda- 
tions or  comments  by  the  governor;  neither  the  governor  nor 
his  administrative  officers  appear  in  person  before  the  general 
assembly  or  its  committees  to  explain  and  support  the  budget. 

6  —  That  summary  tables,  both  of  requests  and  estimated  in- 

come, and  of  the  governor's  reconrunendations  relative  to 
these,  be  submitted. 

These  data  are  not  now  complete  and  are  not  concisely 
and  intelligibly  set  forth.  The  general  assembly  has  not  avail- 
able a  statement  of  the  state  government  as  a  whole,  its 
activities,  and  method  of  financing  them. 

7  —  That   the   governor- elect   be  invited   to  participate   in   the 

preparation  of  the  budget. 

The  present  law  and  practice  take  no  cognizance  of  the 
expiration  of  the  term  of  governor  just  prior  to  the  submission 
to  the  general  assembly  of  a  biennial  budget.  Under  the  pro- 
posed reorganization  the  need  for  remedying  this  condition 
will  be  emphasized. 

8  —  That  public  hearings  be  had  on  the  tentative  budget,  both 

by  the  governor  and  by  the  proposed  joint  legislative  com- 
mittee on  budget. 

This  is  a  neglected  feature  of  the  present  procedure,  al- 
though it  is  the  only  real  and  direct  opportunity  the  public 
has  of  expressing  its  approval  of  or  objections  to  the  pro- 
posed services  to  be  undertaken  by  the  state  during  the  next 
two  years.  The  meaning  of  "public  hearings"  should  be  made 
clear  through  the  custom  of  statewide  announcement  of  same  in 
ample  time  before  they  are  held. 

9  —  That  the  governor  accompany  the  budget  -with  one  general 

appropriation  bill  containing  requests  for  all  the  operation, 
maintenance,  and  improvement  projects  to  be  paid  from 
state  funds  during  the  ensuing  biennial  period,  except 
emergencies. 


ON   ADMINISTRATIVE  REORGANIZATION  57 

10  —  That   special   or  emergency   appropriation   bills   be   for  a 

single  purpose  or  object  stated  therein,  having  the  approval 
of  the  governor. 

1 1  —  That  the  "sundry  claims  bill,"  and  appropriation  bills  intro- 

duced independently  by  any  member  of  the  general  as- 
sembly, be  eliminated  by  including  same  in  the  general  ap- 
propriation bill. 

12  —  That   all  appropriation   measures,   and  bills  requiring   ap- 

propriations to  make  them  effective,  be  referred  to  a  joint 
legislative  committee  on  budget. 

1 3  —  That  requests  for  expenditure  for   the  general   assembly, 

certified  by  the  presiding  officer  of  each  house,  and  of  the 
judiciary  certified  by  the  auditor  (proposed  director  of 
finance),  be  submitted  to  the  governor  before  the  fifteenth 
day  of  January,  for  inclusion  in  the  budget  without  re- 
vision, but  with  his  recommendations. 

These  budget  requests  are  now  received  in  the  same  man- 
ner as  those  of  the  executive  departments. 

14  — TTiat  the  general  assembly  have  the  right  to  increase  the 

govemor*s  requests,  provided  they  indicate  the  revenue 
from  which  to  finance  the  additional  cost. 

1 5  —  That  the  governor  employ  an  adequate  budget  staff  to  keep 

informed  of  actual  operating  conditions  in  the  several 
offices,  departments,  institutions,  etc. 

It  is  believed  that  the  governor  has  never  fully  availed 
himself  of  the  opportunity  afforded  him  in  the  budget  act  in 
this  respect.  Continuous  contact  and  study  of  departmental 
work  and  plans  is  believed  essential  for  the  chief  executive. 

16  —  That  the  budget  conunissioner  keep  an  accurate  record  of 

his  activities,  investigations,  conferences,  and  visits  to 
offices,  institutions,  etc. 

Such  record  is  not  available  for  the  work  of  former  bud- 
get commissioners. 

17  —  That  legislative  control   over  expenditures  by  objects,   as 

personal  service,  be  maintained  through  the  adoption  of 
supplementary  schedules  as  part  of  the  budget,  regulating 
positions  and  compensation,  etc. 

These  are  now  items  of  the  budget. 

18  —  That  transfers  between  appropriations  be  made  only  upon 

authority  of  the  emergency  board. 


eg  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

19  —  That  a  sufficient  amount  for  contingencies  be  appropriated 

to  the  emergency  board 

This  is  the  present  practice,  and  it  is  behaved  it  should 
be  continued. 

20  —  That  the  board  of  control  be  abolished,  its  duties  being  per- 

formed by  the  emergency  board. 

21 — ^That  the  claims  board  be  abolished,  claims  being  in- 
cluded in  the  generaJ  appropriation  bill  and  going  before  the 
joint  legislative  conmiittee  on  budget. 

22  —  That    the    act,    requiring    the    submission    by    departments 

monthly    of   detailed   itemized   statements   in   duplicate   of 
expenditures  to  be  made  during  the  month,  be  annulled. 

23  —  That  the  general  assembly  consider  the  feasibility  of  pre- 

paring the  budget  more  nearly  currently. 


THE  CIVIL  SERVICE  COMMISSION 

Prepared  Under  Direction  of 

DR.  L.  D.  UPSON 

By  HARRINGTON  PLACE 


HISTORICAL 

The  first  successful  attempt  at  civil  service  legislation  in  Ohio  was 
put  through  in  the  Payne  Bill  of  1910  — a  bill  making  the  merit  system 
effective  in  the  cities  of  the  state. 

In  191 2  the  constitutional  amendment  making  civil  service  effective 
throughout  the  state  and  in  the  counties  thereof,  as  well  as  the  cities, 
was  carried  in  a  ratio  of  three  for  to  two  against  and  the  law  formulating 
the  organization  and  the  procedure  was  passed  the  following  year. 

At  the  time  this  law  was  passed,  it  was  considered  one  of  the  best 
pieces  of  civil  service  legislation  that  had  up  to  that  time  been  enacted. 

After  the  passage  of  the  civil  service  law  of  1913,  Governor  Cox 
appointed  as  the  civil  service  commission  of  Ohio,  Samuel  Hoskins  of 
Wapakoneta,  President,  C.  I.  Brown  of  Findlay  and  C.  H.  Bryson  of 
Athens.  L.  L.  Faris  of  Lynchburg  was  chosen  Secretary.  During  the 
first  year  the  time  of  the  commission  was  largely  devoted  to  organiza- 
tion and  the  development  of  a  policy.  Records  as  to  the  exact  amount  of 
work  accomplished  are  incomplete,  but  as  is  usual,  there  was  an  immense 
volume  of  work  in  examinations '  to^  get  out  of  the  way  immediately  the 
organization  was  perfected. 

During  the  first  year,  there  were  held  214  competitive  examinations 
for  original  entrance  into  state  and  county  service,  besides  numerous  non- 
competitive examinations  as  provided  for  in  the  191 3  law.  In  the  ex- 
aminations about  20,000  candidates  were  examined. 

In  late  1914  Mr.  Faris  resigned  as  Secretary,  Mr.  Bryson  acting 
in  that  capacity  until  July  191 5,  when  all  three  commissioners  resigned. 

Meanwhile  the  legislature  had  amended  the  1913  law  in  several 
paragraphs,  notably  that  one  relative  to  the  appointment  and  number  of 
commissioners. 

Governor  Willis  appointed  Messrs.  Z.  B.  Campbell,  President,  C.  C. 
German  and  S.  D.  Webb  to  serve  out  the  unexpired  terms  and  Mr.  W. 
E.  Kirshner  acted  as  secretary  for  a  time. 

On  August  30,  191 5,  the  new  commission  appointed  under  the  pro- 
visions of  the  1915  law  entered  upon  its  duties.     Dr.  Z. .  B.  Campbell 

59 


Present 
Organization 


Civil  Service 
Commission 

Secretary  and 
Chief  Eaaminer 

Publicity 
Division 

Record 
Division 

Examining 
Division 

Efficiency 
Division 

proposed 
Organization 


Civil  Servic( 
Commission 


Admlnistrat  ion 
Division 


Examining 
Division 


public Ity 
Bureau 


Record 
Bureau 


Examining 
Bureau 


Bureau  of 
Classification 


ON    ADMINISTRATIVE   REORGANIZATION 


6i 


was  appointed  president  and  Mr.  S.  1).  Webl)  was  appointed  the  other 
member  of  the  commission. 

A  competitive  examination  for  secretary  and  chief  examiner  was 
held  and  Mr.  K.  McKinley,  the  present  incnmbent,  was  appointed  as 
that  officer  from  the  resuUing  ehgible  list. 

Early  in  1917  Mr.  Webb  resigned,  Mr.  George  Ewing  of  Lancaster 
being  appointed  by  Governor  Cox  to  succeed  him.  Mr.  Randolph  W. 
Walton  was  appointed  on  Jmie  15,  1917,  to  complete  the  term  of  Dr. 
Campbell,  expiring  August  30,   191 7. 

Messrs.  Ewing,  president,  and  Walton  are  the  present  members  of 
the  commission. 

OBJECT  AND  EXTENT  OF  STUDY 

In  undertaking  the  study  of  the  state  civil  service  commission  of 
Ohio,  the  first  objective  is  to  ascertain  wherein  the  law,  the  rules  and 
the  practice  of  the  commission  are  not  in  accord  with  the  best  civil 
service  practice,  and,  as  far  as  consistent,  not  in  accord  with  the  generally 
accepted  principles  of  employment  agencies  in  private  business;  and 
second,  wherein  the  present  organization  is  not  properly  functioning  on 
a  basis  of  existing  laws,  and  to, make  such  recommendations  as  may 
possibly  bring  about  a  more  efficient  and  business  like  administration  of 
matters  of  personnel  throughout  the  state  service. 

THE  ANALOGUE  OF  CIVIL  SERVICE  IN   INDUSTRY 

By  way  of  introduction,  we  must  consider  the  analogue  of  civil 
service  in  industry,  its  objects,  problems  and  methods  as  well  as  the  real 
function  of  civil  service. 

The  original  function  of  civil  service  was  to  oppose  and  destroy 
the  abuses  of  the  "spoils  system",  by  a  system  of  checks  on  entrance 
to  the  service,  and  retention  of  persons  so  checked  at  entrance  during 
good  behavior.  Until  within  the  last  decade  a  reduction  of  the  "turn- 
over" and  a  somewhat  higher  qualification  for  entrance  were  the  only 
noticeable  results. 

Latterly,  efforts  have  been  made  by  civil  service  commissions  to 
develop  a  real  efficiency  in  public  service. 

Following  slowly  on  the  enormous  industrial  developments  of  the 
last  two  decades  or  twenty-five  years,  but  developing  substantially  in  the 
last  decade,  since  employment  and  labor  have  been  real  problems,  is  the 
employment  department  in  industry.  This  is  endeavoring  to  do  and 
accomplishing  most  that  civil  service  has  done  for  public  employment, 
and  much  more.  Instead  of  occupying  a  position  comparable  with  that 
occupied  by  the  civil  service  in  public  activities,  the  employment  depart- 
ment of  industry  is  a  most  important  factor,  and  its  chief  is  very  little 
lower  than  the  general  manager. 


62  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

The  civil  service  is  exactly  comparable  with  the  employment  depart- 
ment, and  both  are  likened  to  the  purchasing  department,  the  difference 
being  that  the  two  fomier  purchase  personal  service  and  the  latter,  ma- 
terials, equipment,  tools  and  other  goods. 

PROBLEMS    OF    EMPLOYMENT 

In  order  to  establish  a  background,  it  is  desirable  and  necessary  to 
have  the  problems  of  employment,  whether  industrial  or  in  public  service, 
firmly  fixed  in  our  minds.  The  differences  that  exist  are  largely  those 
of  imagination.  Business  outside  of  that  known  as  public  business  is 
conducted  for  profit.  In  public  business,  which  is  everybody's,  and  is 
conducted  for  the  public  good,  the  rules  of  modern  business  do  not 
seem  so  clearly  applicable,  but  in  the  present  days  of  high  costs,  the 
opportunity  for  greater  efficiency  will  be  given  more  attention  than  is 
usually  the  case. 

The  great,  outstanding,  reducible  factor  of  production  cost  is  the 
labor  "turnover",  or  in  simple  words,  the  hiring  and  firing  of  employes, 
indiscriminately.  This  is  estimated  variously  by  eastern  employers 
(1916-17)  as  being  from  $40  to  $200  per  person  discharged.  A  high 
official  of  one  of  the  largest  of  the  automobile  factories  was  recently 
quoted  as  saying  that  unless  an  employe  stayed  a  year  or  more  in  that 
plant,  his  services  were  unprofitable  to  the  company.  This  is  a  strong 
statement  and  may  be  taken  with  a  grain  of  salt,  but  it  is  indicative  of  the 
importance  placed  on  continuous  service.  As  the  "turnover"  in  public 
service  was  and  is  the  factor  whose  elimination  has  been  sought  by  civil 
service,  this  cannot  be  emphasized  too  strongly.  The  retention  of  em- 
ployes in  service  has  been  so  stressed  by  employment  agencies  in  private 
concerns  that,  we  feel,  other  matters  are  somewhat  neglected  or  over- 
looked in  the  effort  in  this  direction. 

Another  development  in  private  employment  is  the  "service  record", 
a  fact  history  of  individual  performance,  on  which  new  rates  of  compen- 
sation are  based.  These  records,  developed  in  absolute  fairness,  come 
nearer  to  a  solution  of  problems  of  industrial  unrest  than  profit  sharing 
and  other  forms  that  have  been  tried.  Forming  as  they  do  the  basis  of 
financial  advancement,  they  enable  an  individual  to  rise,  without  a  maxi- 
mum limit,  to  the  full  extent  of  his  individual  strength,  application  and 
ability. 

The  success  of  any  employment  agency  is  dependent  directly  on 
what  it  has  to  offer  in  exchange  for  personal  service.  In  other  words, 
to  get  as  many  men  of  the  kind  that  are  wanted,  the  service  must  be  made 
a  little  more  attractive  than  any  other,  and  the  factors  that  make  for  at- 
tractive service  are : 

First  —  Salary  at  start.  It  must  be  adequate  and  the  same  for  the 
same  work. 


ON   ADMINISTRATIVE  REORGANIZATION  63 

Second  —  Security  in  the  job. 

Third  —  Opportunity  for  promotion. 

Fourth  —  Time  for  recreation  and  improvement. 

Fifth  —  Pensions  and  retirement  funds. 

As  the  latter  two  items  are  matters  belonging  to  the  welfare  bureau, 
which  as  yet  has  no  position  in  public  service,  they  will  not  be  discussed. 

The  first  three  factors  apply  to  any  service,  however,  and  are  funda- 
mental in  salary  standardization  and  in  setting  up  a  graded  classification. 

The  application  must  be  obvious  in  the  service  of  Ohio.  The  fact 
that  salaries  in  the  state  service  of  Ohio  are  practically  what  they  were 
prior  to  the  entrance  of  the  United  States  into  the  war  makes  the  wonder 
grow  how  there  is  anyone  left  who  has  not  been  forced  to  other  employ- 
ment. 

The  criticisms  and  suggestions  following  are  made  with  these  es- 
sentials, mentioned  above,  in  mind. 

CRITICISM    OF   LAW. 

The  law  is  based  on  Article  15,  Section  lo,  of  the  Ohio  Consti- 
tution : 

"Appointments  and  promotions  in  the  Civil  Service  of  the 
state,  the  several  counties  and  cities,  shall  be  made  according  to 
merit  and  fitness,  to  be  ascertained  as  far  as  practicable  by  com- 
petitive examinations.  Laws  shall  be  passed  providing  for  the 
enforcement  of  this  provision." 

Only  those  sections  of  the  law  relevant  to  the  points  enumerated 
heretofore  or  that  are  particularly  noteworthy  will  be  discussed. 

APPOINTMENT   OF    COMMISSIONERS. 

Sec.  486-3.  The  appointment  of  two  commissioners  is  unusual  but 
not  criticised.  The  method  of  selecting  the  commissioners  is  open  to 
criticism  in  that  the  law  mentions  no  qualification  of  a  commissioner 
save  that  both  shall  not  be  members  of  the  same  political  party.  Em- 
phasis is  placed  on  politics  —  and  its  equalization  in  a  body  where 
politics  should  not  be  discussed.  "Where  patronage  is  lost  to  the  'ins'  as 
well  as  the  'outs'  there  will  be  no  partisan  advantage".  That  many  evils 
have  resulted,  no  one  will  deny.  One  remedy  that  has  been  suggested 
is  to  place  the  civil  service  commissioners  in  the  classified  service. 

If  the  laws  were  more  rigid  and  the  function  of  rendering  decisions 
were  not  so  large  a  part  of  the  work  of  the  commissioner,  the  procedure 
might  be  administered  by  one  man,  chosen  by  competition  because  of 
his  familiarity  with  the  needs  of  the  public  service,  because  of  his  knowl- 
edge of  employment  methods  and  technique  of  examinations,  because 
of  his  familiarity  with  service  records  and  efficiency  ratings,  and  also 


64  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

because  of  his  familiarity  with  the  problems  of  departmental  organiza- 
tions. The  administration  of  examinations  and  records  by  one  man  is 
possible.  The  matter  of  holding  hearings  on  appeal,  etc.,  would  present 
greater  difficulty,  but  with  the  aid  of  a  personnel  board  it  could  be  made 
fully  as  eflFective  as  is  the  case  at  present  where  there  are  two,  three, 
and  even  more  commissioners. 

POWERS  AND  DUTIES 

Sec.  486-7 — First  subsection:  "prescribe,  amend  and  enforce  ad- 
ministrative rules  for  the  purpose  of  carrying  out  and  making  effectual, 
the  provisions  of  this  act." 

The  1913  law  gave  the  rules  of  the  commission  the  force  and  effect 
of  law.  The  present  law  does  not,  and  while  the  commission  has  an 
elaborate  set  of  rules,  they  have  no  means  of  enforcing  them  if  there 
is,  on  occasion,  a  disposition  to  proceed  counter  to  them.  The  effect  of 
law  should  be  given  to  the  rules. 

CLASSIFIED   AND   UNCLASSIFIED  DEFINED;   EXEMPTIONS 

Study  of  the  constitutional  provision  fails  to  develop  any  sugges- 
tion that  exemptions  to  the  operation  of  the  competitive  feature  were  to 
be  general.  The  1913  law  made  the  mistake  of  making  too  many  exemp- 
tions and  the  191 5  law  amplified  them  beyond  reason. 

Elective  officers  are  exempt,  of  course.  There  is  nothing  in  civil 
service  that  contemplates  the  restriction  of  our  democratic  privileges. 
The  exemption  of  the  heads  of  departments  who  may  be  said  to  form 
the  "cabinet"  of  the  executive,  — •  i.  e.,  those  who  assist  in  fonning 
policies  for  the  administration,  is  logical.  Otherwise  there  is  no  reason 
why  a  department  head  should  be  exempt,  as  far  as  the  practicability  of 
examination  is  concerned,  and  for  reasons  of  economy  and  the  good 
of  the  service  there  is  every  reason  why  a  department  head  who  is 
efficient  should  stay  during  good  conduct  and  the  continuation  of  efficient 
service.  This  applies  particularly  to  department  secretaries,  who  are  the 
"works"  of  a  department  generally. 

There  is  nothing  impracticable  about  holding  examinations  for  em- 
ployes of  the  general  assembly,  and  it  is  done  in  Wisconsin  with  (licidedl\- 
beneficial  results. 

There  is  no  reason  for  assuming  the  functions  of  boards  of  educa- 
tion in  examining  teachers.  Librarians  may  be  examined;  they  have  been 
elsewhere. 

The  reason  for  exemi)ting  three  secretaries,  assistants  or  clerks  and 
one  personal  stenograi>her  for  elective  state  offijcers  is  doubtless  based 
on  the  "confidential"  relations  existing.  Why  there  should  be  so  much 
"confidential"  matter  in  affairs  of  public  interest  is  not  entirely  clear. 
The  exemption  of  deputies  to  an  officer  is  concemed  in  outlining  a  policy, 


ON    ADMINISTRATIVE   REORGANIZATION  65 

in  which  work  the  deputy  may  be  called,  is  reasonable,  but  the  exemption 
of  a  deputy  sim.ply  because  he  has  been  called  a  deputy  some  time  in  the 
past  is  unwarranted,  particularly  in  the  discharge  of  purely  routine 
business. 

In  the  legal  service  of  the  state,  there  are  reasons  why  the  attorney 
general  should  make  his  own  appointments.  Unless  he  is  absolutely 
sure  of  his  subordinate,  there  might  be  a  leak  of  information  that  would 
result  in  defeating  justice. 

Were  all  responsibility  in  connection  with  the  determination  of  the 
"practicability"  of  an  examination  removed  from  the  commission,  the 
latter  would  be  freed  from  the  criticisms  that  will  follow  whatever 
action  it  may  take.  The  more  rigidly  such  determination  is  established 
by  law,  the  freer  from  complication  will  be  the  administration  of  this  law. 

As  indicated  previously,  the  1913  law  was  weak  in  its  section  on 
exemptions.  Too  many  were  made  then  and  the  changes  in  191 5  weak- 
ened it  still  more. 

The  "confidential"  and  "fiduciary"  relations  have  been  made  the 
basis  of  argument  for  exemption  ever  since  civil  service  has  existed. 
Persons  have  been  very  successfully  examined  for  such  positions  for  a 
decade  or  more  in  Chicago,  New  York  and  other  places.  It  is  possible 
that  the  examining  procedure  in  Ohio  has  not  covered  a  full  and  detailed 
investigation  of  the  character  of  applicants  for  such  positions.  Had  the 
commission  an  ample  appropriation,  it  could  be  done  in  the  case  of  every 
applicant  as  it  should  be,  for  the  state  has  reason  to  expect  100%  in- 
tegrity from  every  employe  and  should  not  restrict  this  requirement  to 
exempt  employes  alone. 

Furthermore,  being  given  such  amplitude  in  exemptions,  as  is  be- 
stowed in  the  191 5  law,  it  is  only  human  nature  to  ask  for  more  and 
make  every  effort  to  get  more  exemptions,  and  often  an  enormous  amount 
of  time  is  wasted  in  discussing  such  matters  when  there  should  be  no 
discussion  or  consideration  given. 

From  the  standpoint  of  economy,  the  changes  in  the  exempt  posi- 
tions, with  each  change  of  administration,  is  one  of  the  most  expensive 
extravagances  of  the  system.  As  these  positions  are  generally  those 
paying  the  best  salaries,  the  "turnover"  cannot  be  figured  in  the  same 
low  figures  that  express  "labor  turnover",  as,  too  often,  the  appointee 
to  an  exempt  position  has  to  learn  everything  about  his  job,  and  may 
be  able  to  perform  those  duties  only  indifferently  after  he  has  learned 
what  they  are. 

The  effect  on  the  ambition  of  subordinates  damping  as  each  exemp- 
tion removes  an  opportunity  for  advancement  to  a  subordinate  who  m.ay 
have  all  of  the  qualifications  therefor;  so  the  more  exemptions  there  are, 
the  more  expensive  is  the  operation  to  the  state  in  actual  cash  outlay 
per  amount  of  work  done,  by  reason  of  the  "turnover"  and  also  by 
reason  of  the  killing  of  ambition, 
5 


66  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  unskilled  labor  class  should,  theoretically,  be  regulated  by  civil 
service  procedure,  but  at  the  present  time  any  attempt  at  the  procedure 
outlmed  in  the  law  is  useless,  as  the  present  conditions  have  rendered 
it  entirely  unavailing.  It  is  recommended  that  this  clause  be  stricken 
out,  at  least  until  conditions  are  greatly  changed. 

Notice  of  appointment  of  labor,  to  supply  data  for  checking  pay- 
rolls, is  all  that  is  necessary,  and  practically  all  that  is  now  required. 

RULES   AND    CLASSIFICATION 

Sec.  486-9  —  The  classification  of  positions  is  one  of  the  funda- 
mentals of  civil  service.  The  classification  incorporating  standard  speci- 
fications and  contemplating  standard  salary  rates  was  begun  in  1916  and 
adopted  early  in  191 7. 

The  "standard  specifications"  are  designed  to  set  up  a  graded  service 
based  on  functional  lines,  and  offering  a  gradual  advancement  and  pro- 
motion from  the  lowest  and  entrance  grades  to  the  higher  positions  of 
employment  and  are  a  basis  for  setting  up  examinations,  both  original 
and  promotional,  and  of  value  in  setting  up  standards  of  work  for  the 
several  grades.  The  results  contemplated  are  set  up  on  pp.  10  and  11 
of  the  specifications. 

To  accomplish  all  of  these  things,  or  any  of  them,  the  needs  of 
the  service  must  be  made  the  subject  of  a  very  thorough  study  and 
analysis  under  the  direction  of  the  commission. 

That  this  was  not  done  seems  evident  from  the  great  amount  of 
resurvey  work  done  by  the  efficiency  division  and  from  the  fact  that 
for  some  departments  the  civil  service  commission  does  not  hold  pro- 
motional examinations,  but  allows  the  head  of  department  to  make 
nomination  therefor,  after  which  the  efficiency  division  makes  an  in- 
vestigation of  the  individual  case. 

In  connection  with  this  matter,  it  is  recommended  that  these  speci- 
fications be  revised,  by  a  conference  between  the  efficiency  division  and 
department  heads  or  representatives,  and  that  the  requirements  and 
duties  be  set  up  on  the  basis  of  the  results  of  the  conference  in  which 
the  duties  and  responsibilities  of  positions,  and  not  the  peculiar  qualifi- 
cations or  temperament  of  the  individual  incumbent,  are  the  matters 
discussed. 

No  individual  cases  of  imperfections  arc  in  mind  as  the  time  allowed 
for  the  study  did  not  permit  the  close  analysis  of  any  particular  position 
in  connection  'with  the  specifications.  The  definitions  of  duties  and  quali- 
fications must  be  worked  out  with  great  accuracy  to  insure  the  proper 
selection  of  incumbents  for  specific  duties  through  the  process  of  ex- 
amination. 

The  same  section  authorizes  the  preparation  of  rules  "for  main- 
taining and  keeping  records  of  the  efficiency  of  officers  and  employes", 
and  Sec.  486-18  empowers  the  commission  to  make  investigations  for 


ON   ADMINISTRATIVE   REORGANIZATION  67 

the  determination  of  efficiency  and  to  fix  standards  thereof,  and  also 
makes  the  compliance  with  the  commission's  requirements  mandatory 
on  officers  and  employes. 

Up  to  this  time  there  have  been  no  service  records  prepared  and 
put  mto  general  use,  and  the  ratings  in  promotional  work  have  been 
approximations  at  best. 

The  preparation  of  service  records  is  a  matter  that  has  never  been 
solved  entirely  satisfactorily  in  public  service,  and  there  has  been  a 
natural  hesitancy  in  inaugurating  an  incomplete  or  an  unsatisfactory 
system  of  records.  A  start  should  be  made  in  this  work  as  the  fact 
record  of  performance  is  the  only  proper  basis  of  determining  merit  for 
advancement  or  promotion,  and  it  will  develop  as  work  on  it  progresses. 
This  work  should  be  done  and  the  records  started  before  reorganization 
and  other  efficiency  studies  are  contemplated. 

The  classification  or  standard  specifications  lack  all  mention  of 
standard  salaries  for  the  several  services  except  the  clerical  and  the 
engineering  group  of  the  professional  service. 

The  establishment  of  salaries  is  a  legislative  function  —  and  one 
that  should  be  attended  to  at  once  by  the  present  legislature.  The  re- 
vision of  all  salaries  and  the  determination  of  new  rates  and  ranges  of 
compensation  for  all  groups  and  grades,  should  be  based  on  the  present 
cost  of  living,  the  market  value  of  the  same  service  in  Ohio,  and  the 
value  of  the  work. 

The  present  schedule  of  salaries  is  so  low  in  Ohio  that  it  is  an 
astonishing  fact  that  there  have  been  any  in  the  service  who  could  afford 
to  stay.  That  many  have  been  unable  to  stand  the  economic  pressure 
is  indicated  by  the  "turnover"  records,  notably  in  the  highway  depart- 
ment. 

EXAMINATIONS  :      EXEMPTIONS  AS   TO   SOLDIERS   AND   SAILORS 

Sec.  486-10  —  The  constitution  authorizes  no  general  class  exem.p- 
tion  from  the  application  of  the  competitive  examination.  The  law  of 
uable  things  to  the  men  who  defended  democracy  for  us  and  we  cannot 
assume  that  the  bill  was  introduced  with  any  but  the  most  patriotic 
motives.  The  result  on  civil  service  will  be  essentially  the  same,  however, 
191 5  introduced  the  preference  provision  for  veterans  of  the  Civil  War, 
requiring  them  to  file  a  certificate  of  discharge  merely,  and  without  ex- 
amination they  become  eligible  for  appointment.  As  bad  as  this  seems, 
the  results  have  shown  that  the  veterans  of  the  War  of  the  Rebellion  are 
too  old  and  infirm  to  undertake  even  public  service,  and  they  realize  it. 
However,  the  Liggett  Bill,  senate  bill  number  3,  19 19,  contemplates 
bringing  veterans  of  the  Spanish  American  War  and  the  war  with  the 
central  European  powers,  including  all  branches  of  service  and  nurses, 
under  the  same  broad  provision. 

No  one  can  reasonably  refuse  land,  bonds,  pensions,  or  other  val- 
uable things  to  the  men  who  defended  democracy  for  us  and  we  cannot 


68  RKI'OKT   OF  JOINT   IJCGISLATIVE   COMMITTEE 

assume  that  the  bill  was  introduced  with  any  but  the  most  patriotic 
motives.  The  result  on  civil  service  will  be  essentially  the  same,  however, 
as  though  it  were  deliberately  intended  to  kill  all  competitive  methods 
of  selection  for  the  service  of  Ohio. 

On  its  face  it  seems  unconstitutional.  The  result,  if  the  bill  passes, 
wrill  be  that  eligible  lists  will  be  filled  with  returned  soldiers,  whose  fit- 
ness is  questionable  and  v^hose  appointments  will  be  largely,  if  not  en- 
tirely, determined  by  the  pressure  of  one  sort  or  another  that  may  be 
brought  to  the  appointing  officer. 

The  employment  situation  now  is  grave  enough  to  be  considered  a 
national  emergency.  There  is  a  general  sentiment  among  non-com- 
batants that  the  returned  soldiers  themselves  do  not  want  such  legisla- 
tion. This  is  evidenced  by  an  editorial  in  a  recent  issue  of  the  Saturday 
Evening  Post:  '.'We  are  not  afraid  that  an  army  that  fought  for  an 
ideal  and  thirty  dollars  per  month  will  turn  spoilsmen  when  faced  with 
a  national  emergency".  The  committee  is  urged  therefore  to  assist 
by  every  means  in  ascertaining  that  this  bill  express  the  sentiment  of 
the  organizations  of  returned  soldiers,  and  whether  there  are  not  other 
ways  of  showing  patriotic  appreciation  for  this  service. 

APPLICATIONS 

Sec.  486-11 — Concerning  the  application  themselves,  there  is  no 
comment.  The  charge  fees  of  50c  and  $1.00  for  examinations  for  posi- 
tions paying  below  and  above  $1,000  respectively  is  unusual.  The 
revenue  derived  is  inconsiderable.  If  it  was  intended  to  keep  out  un- 
qualified candidates  from  the  examination  it  may  discourage  a  few,  but 
a  more  efficacious  method  seems  to  be  easily  found  in  more  rigid  re- 
quirements. Otherwise  the  charge  seems  too  small  and  picayunish  to  be 
made  by  the  great  state  of  Ohio. 

APPOINTMENTS 

Sec.  486-13  —  Under  the  present  wording  of  this  section,  an  ap- 
pointing officer  has  unlimited  time  to  make  an  appointment  after  the 
certification  of  names  from  an  eligible  list.  An  explicit  statement  that 
appointments  shall  be  made  within  fifteen  days  from  the  date  of  the 
certification  would  have  two  results:  first,  the  appointing  officer  will 
avoid  the  appearance  of  "jockeying"  with  eligible  lists ;  and  second, 
the  civil  service  commission  must  certify  the  names  of  persons  who  are 
not  only  eligible  but  available,  which  is  often  quite  as  important. 

TEMPORARY    AND   EXCEPTIONAL   APPOINTMENTS 

Sec.  486-14  —  Though  temporary  appointments  are  one  of  the  com- 
monest means  of  evading  the  strict  application  of  the  law,  the  provision 
permitting   them   is   absolutely   necessary.     The   number   of   temporary 


ON    ADMINISTRATIVE   REORGANIZATION  69 

or  provisional  appointments  in  force  is  a  very  good  index  of  the  activity 
and  vigilance  of  the  commission  as  is  the  length  of  time  for  which  they 
are  permitted  to  run.  The  wisdom  of  the  requirement  that  successive 
appointments  (temporary)  to  the  same  position  be  not  allowed,  is  doubt- 
ful as  there  is  a  question  whether  it  is  better  to  incur  added  expense  by 
changing  the  appointee,  or  permit  an  appointment  with  some  political  or 
personal  preferences  until  the  position  can  be  filled  by  the  regular  pro- 
cedure. The  retention  of  one  appointee  of  the  temporary  character,  while 
being  open  to  abuse,  is  a  more  business-like  procedure. 

PROMOTIONS 

Sec.  4S6-15  —  The  law  makes  the  filling  of  vacancies  by  promotion 
dependent  on  the  practicability  of  the  promotional  procedure.  The  good 
of  the  service  may  sometimes  be  augumented  by  the  infusion  of  new 
blood,  and  sometimes  there  may  be  no  one  in  a  lower  grade  with  pre- 
cisely the  qualification  necessary  for  the  position  vacant. 

For  the  purposes  of  real  organization,  there  should  be  understudies 
in  every  office  under  constant  training  for  higher  responsibilities,  and  as 
one  of  the  factors  making  employment  attractive,  the  opportunity  for  ad- 
vancement should  be  presented  as  often  as  is  possible  for  the  determina- 
tion on  the  questions  of  merit  and  fitness. 

Except  in  unusual  cases,  there  should  be  the  possibility  of  promo- 
tion from  lower  grades,  the  good  of  the  service  being  the  only  considera- 
tion worthy  of  exception. 

The  factors  mentioned  in  the  law  as  controlling  promotional  tests 
are  merit,  conduct  and  capacity  in  office,  and  seniority.  "Efficiency  and 
seniority  in  service  shall  form  a  part  of  the  maximum  attainable  in  such 
examination." 

As  promotional  tests  may  form  so  vital  a  part  of  the  machinery 
of  the  employment  department,  more  time  and  space  will  be  devoted 
to  it  here  than  may  seem  warranted. 

Promotion  is  defined  as  "advancement  to  a  higher  position,  grade, 
class  or  rank  —  as  to  earn  promotion  by  study  or  bravery".  It  contem- 
plates a  change  of  duty,  and  the  definition  indicates  that  it  should  be 
earned.  For  the  purposes  of  this  discussion  "conduct  and  capacity  of 
office"  or  efficiency  in  a  lower  grade  may  be  considered  one  factor, 
seniority  is  mentioned  as  another,  but  the  value  of  seniority  as  indicative 
of  any  positive  virtue  is  questionable.  The  fitness  for  or  ability  to  per- 
form the  duties  of  the  higher  position  should  be  another  factor.  "Merit 
and  fitness"  should  be  the  determining  factor  in  promotion  in  the  civil 
service  if  anywhere. 

SERVICE  RECORDS 

It  is  in  connection  with  the  determination  of  merit  that  the  service 
record  is  being  adopted  in  private  employment  generally,  sometimes  even 
being  made  the  one  basis  of  wage  increases.     It  is  true  that  conditions 


70  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

in  private  employment  are  such  that  it  is  much  simpler  to  apply  the  serv- 
ice record  to  such  uses,  than  those  in  public  employment.  The  fact  re- 
mains that  to  be  productive  of  the  desired  results,  promotions  must  be 
absolutely  "on  the  square".  The  service  record  is  a  record  of  facts  in 
connection  with  individual  service.  The  problem  in  developing  the 
records  is  to  secure  the  proper  information  and  give  it  its  proper  value. 
In  private  employment  there  are  no  such  safeguards  set  up  as  are  en- 
countered in  public  service,  and  the  promotion  or  advancement  is  jxDssible 
as  soon  as  the  merit  therefor  is  discovered.  The  best  that  can  be  done  in 
the  public  service  is  to  give  "efficiency"  a  rating  to  be  used  when  a 
vacancy  above  makes  a  promotion  possible.  As  the  promptness  with 
which  merit  is  rewarded  is  a  vital  element  in  its  appreciation,  it  is  good 
business  to  attend  to  such  matters  promptly,  but  the  public  service  must 
do  the  best  possible  under  the  handicap. 

The  service  rating  must  be  done  with  absolute  impartiality  and  on 
factors  whose  value  may  be  given  a  definite  rating  rather  than  expressed 
in  vague  terms. 

Sec.  486-18  —  amplifies  the  matter  of  "efficiency"  as  a  factor  in  pro- 
motions, and  the  failure  of  the  commission  to  establish  some  system  of 
rating  it  is  the  most  serious  omission  disclosed  in  the  study  of  its 
work. 

The  general  plan  outlined  in  subsection  15  and  18  is  admirable. 
It  would  be  strengthened  were  written  and  oral  tests  specified  and  made 
mandatory  as  part  of  the  promotional  procedure  as  a  surer  means  of 
ascertaining  fitness  or  qualification  for  the  duties  of  the  higher  position. 

As  the  promotional  system  has  such  close  relation  to  the  vital  ele- 
ments of  the  whole  matter  of  employment,  the  matters  mentioned  de- 
serve attention  at  an  early  date. 

TENURE  OF  OFFICE  —  REMOVALS 

Sec.  486-17-A  —  The  tenure  of  office  shall  be  "during  good  behavior 
and  efficient  service".  The  question  of  removal  is  the  most  debated  of 
any  in  civil  service  administration.  As  a  matter  of  efficient  and  modern 
employment  procedure,  the  provisions  of  this  section  are  quite  in  line. 

The  breakdown  in  discipline  in  an  office  to  which  an  employe  has 
been  reinstated  may  be  obviated  by  the  simple  procedure  of  having  the 
investigation  made  before  axztion  is  taken.  In  modern  private  systems, 
the  employe  is  not  discharged  by  a  department  head  or  foreman.  They 
make  a  report,  the  employment  department  investigates,  and  if  a  change 
is  desirable  a  transfer  is  arranged  if  possible,  or  some  readjustment  is 
attempted.  In  this  connection  the  employe  should  not  feel  that  he  cannot 
be  removed,  and  as  a  matter  of  conservation,  the  department  head  should 
use  every  effort  to  readjust  the  employe  in  some  way  before  asking  for 
a  discharge  if  there  is  any  doubt  as  to  the  outcome  of  charges  preferred. 

It  is  not  the  intent  of  the  provisions  of  the  law.  and  is  not  the  wish 


ON   ADMINISTRATIVE   REORGANIZATION  7I 

of  its  administrators  to  keep  incompetent  and  inefficient  public  servants 
in  office.  The  inefficiency  should  be  clearly  demonstrated  before  any  at- 
tempt at  removal  is  made,  and  as  suggested,  the  charge  could  be  brought 
before  definite  action  is  taken  and  most  of  the  objection  to  the  present 
situation  be  removed  by  so  doing.  In  private  employment  agencies  the 
procedure  is,  briefly  as  follows : 

The  foreman  or  head  of  the  department  in  which  the  unsatisfactory 
employe  works,  sends  a  notice  of  the  conditions  existing  to  the  employ- 
ment department,  which  at  once  institutes  an  investigation  and  if  it  is 
developed  that  conditions  are  as  represented,  an  effort  is  made  to  trans- 
fer the  employe  to  work  at  which  he  may  be  employed  efficiently.  Some- 
times the  fault  is  located  at  the  door  of  the  foreman  or  department  head, 
in  which  case  the  action  is  taken  there.  As  previously  indicated,  the  con- 
servation of  man  power  is  so  important  that  the  effort  to  save  a  dis- 
charge is  not  abandoned  until  there  is  no  doubt  that  the  service  is  better 
off  with  the  man  discharged.  Some  factories  go  so  far  as  to  make  three 
readjustments  of  the  individual  before  discharge  is  finally  made. 

EFFICIENCY 

Sec.  18  —  As  indicated,  a  start  has  been  made  toward  getting  the 
necessary  foundation  for  service  records  and  efficiency  ratings.  The 
standard  graduated  classification  is  only  a  beginning  and  while  it  may 
seem  that  more  might  have  been  accomplished,  the  rating  of  efficiency 
is  an  exceedingly  difficult  matter  until  salaries  are  standardized  so  that 
all  doing  the  same  work  are  receiving  the  same  recompense,  for  efficiency 
is  a  variable  for  a  grade  in  which  salary  should  be  a  constant,  practically, 
but  never  will  be  until  definite  authoritative  action  to  that  end  is  taken. 

\Miether  the  efficiency  studies  comprehend  those  of  reorganization  is 
doubtful  and  the  wisdom  of  undertaking  such  studies  before  the  entire 
service  has  been  won  to  the  efficiency  of  the  examination  and  other 
fundamental  procedure,  is  questionable. 

OTHER  SECTIONS  OF  LAW 

The  remaining  sections  of  the  law  have  to  do  largely  with  municipal 
commissions  and  penalties  for  violations  of  the  law. 

The  section  establishing  civil  service  in  the  municipalities  probably 
has  gone  too  far  in  the  requirement  of  civil  service  for  all  cities.  The 
operation  of  the  system  in  small  cities  is  very  unsatisfactory  and  probably 
unproductive  of  any  real  good. 

The  failure  to  place  any  real  supervisory  functions  in  the  hands 
of  the  state  commission  and  to  make  the  state  commission  a  clearing 
agency  for  all  sorts  of  civil  service  information  is  a  disappointment. 
There  should  be  some  centralized  control  or  superv^ision  over  the  opera- 
tion of  the  law  in  the  cities  above  say  —  50,000  population 


y2  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 


ORGANIZATION    AND   FUNCTIONS   OF  THE    COMMISSION 

The  functions  of  the  commission,  together  with  the  organization 
of  its  personnel  and  the  relations  of  the  several  units  are  graphically 
shown  in  the  chart  accompanying.  The  only  modification  of  the  present 
organization  recommended  at  this  time  is  to  place  the  efficiency  division 
under  the  direction  of  the  chief  examiner,  as  an  adjunct  of  the  examin- 
ing division. 

WORK  OF  THE  COMMISSION 

In  making  the  investigation,  practically  all  work  was  done  in  the 
ofifices  of  the  commission,  going  through  its  records  and  in  conference 
with  the  commissioners,  the  secretary,  the  examiners  and  the  clerks  of  the 
several  divisions. 

The  work  done  by  the  commission  itself  covers  a  wide  range,  as  it 
includes  the  usual  administrative  functions,  functions  almost  legislative 
in  the  formulation  of  rules,  and  in  hearings  and  trials  its  functions  are 
nearly,  if  not  quite,  judicial. 

LEGISLATIVE   FUNCTIONS 

These  are  expressed  in  the  rules.  The  criticism  of  the  rules  of 
the  commission  reflect  onto  the  law  itself,  as  the  latter  gives  the  commis- 
sion no  means  of  enforcing  the  rules  prepared  by  it.  Whatever  short- 
comings there  may  be  in  the  rules,  are  inconsequential  in  comparison  to 
other  matters. 

JUDICIAL  FUNCTIONS 

These  functions  are  performed  in  hearings  and  trials,  relative  to 
appeals  from  rulings  of  department  heads  and  for  discharge  after 
charges  have  been  filed.  There  have  been  many  of  these.  A  number  of 
cases  were  investigated  in  Columbus,  in  which  dissatisfaction  had  been 
expressed  by  individuals  having  no  interest  except  that  of  good  citizen- 
ship. The  records  of  the  commission  were  scrutinized,  the  commissioners 
and  officers  of  the  commission  were  interrogated  and  in  each  instance 
the  decision  rendered  was  the  only  one  that  could  have  been  made  in  the 
facts  adduced  in  the  testimony,  and  under  the  law. 

Since  leaving  Columbus,  many  allegations  as  to  the  unwarranted 
action  of  the  civil  service  commission  have  been  made  and  have  reached 
the  field  agent.  The  latter  holds  no  brief  for  the  civil  service  commission, 
but  does  appreciate  the  unthinking  manner  of  most  disgruntled  position 
seekers  in  making  and  giving  publicity  to  criticisms  on  the  methods  of 
the  civil  service  commission.  If  a  small  percentage  of  the  reports  were 
true,  generally  the  mere  removal  from  office  would  be  no  fit  penalty. 

It  is  suggested  that  the  committee  on  administrative  reorganization 
ask  the  civil  service  commission  to  airfjear  with  records  and  make  such 


ON    ADMINISTRATIVE   REORGANIZATION  73 

Statements  and  answer  such  questions  as  the  committee  deem  pertinent. 
Such  charges  are  serious  matters.  If  true,  the  state  should  know  them 
and  get  its  information  straight;  if  untrue,  the  state  should  know  it  just 
the  same,  but  the  commissioners  should  be  given  the  opportunity  to  be 
heard  authoritatively  in  any  event.  The  commission  was  expecting  to  be 
called  before  the  committee  as  were  other  departments,  at  the  time  the 
study  was  made,  but  at  the  last  advices,  the  commissioners  had  had  no 
hearing. 

ADMINISTRATION 

These  duties  are  divided  pretty  evenly  between  the  record  division 
and  the  examination  division.  The  publicity  division  consists  of  one  man 
only,  and  the  efficiency  division  of  two  examiners  and  a  stenographer. 

The  administrative  functions  of' the  civil  service  commission  simply 
expressed  are : 

First  —  To  hold  competitive  (pialifying  examinations  for  determin- 
ing eligibility  for  appointment. 

Second  —  To  establish  such  eligible  lists. 

Third  — To  make  certincations  from  eligible  lists  to  fill  vacancies. 

Fourth  —  To  see  that  appointments  are  made  from  such  lists  duly 
certitied. 

Fifth  —  If  no  list  exists,  to  authorize  a  temporary  appointment. 

Sixth  —  To  keep  records  of  service  on  all  employes,  to  the  end  that 
efficiency  may  be  promoted. 

Seventh  —  To  control  promotional  procedure. 

Eighth  — To  check  all  payrolls  —  relative  to  the  legality  of  the 
appointment  of  all  persons  included  thereon. 

The  record  division  is  concerned  with  all  of  these  functions  except 
the  first,  sixth  and  seventh  —  although  it  does  the  actual  compilation 
of  the  eligible  list. 

The  examination  division  has  the  first  and  second  and  the  efficiency 
division  has  the  sixth. 

RECORD  DIVISION 

A  detailed  exposition  of  the  minutiae  of  this  and  the  other  divisions, 
with  exhibits  of  forms,  blanks,  and  records  has  been  prepared  and  dis- 
carded as  being  unnecessary  to  indicate  the  work  done.  However,  a 
synopsis  of  the  work  of  the  record  and  other  divisions  will  be  useful 
in  following  the  procedure  and   indicating  its  volume. 

PROCEDURE    IN    CALLING    AND    HOLDING    EXAMINATIONS. 

In  order  to  indicate  clearly  the  procedure  of  examination  work,  it 
may  be  well  to  follow  through  the  entire  process  of  calling  and  holding 
an  examination  with  some  of  the  detail  in  connection  therewith.  The 
necessity  of  an  examination  is  disclosed,  possibly,  by  the  receipt  of  a 
requisition  for  certification  for  appointment.    In  case  there  is  no  list  of 


74  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

eligibles  the  necessity  for  the  examination  is  disclosed.  This  is  made 
a  matter  of  record  in  the  record  division,  and  in  case  the  position  is  a  new 
one  it  is  referred  to  the  efficiency  division  for  a  survey.  In  case  the 
efficiency  division  reports  adverse  the  commission  takes  action  limited  to 
proper  classification.  In  case  no  eligible  list  exists  a  provisional  appoint- 
ment IS  authorized  by  letter  signed  by  the  secretary.  When  this  appoint- 
ment comes  in  it  is  referred  to  the  certification  clerk,  and  then  to  the 
efficiency  division  for  approval.  The  commission  then  approves  _  or 
rejects  and  the  department  is  notified.  This  completes  the  provisional 
appointment  and  the  form  is  referred  to  the  pay  roll  clerk  for  record. 
An  attempt  is  always  made  to  find  an  appropriate  list  from  which  an  ap- 
pointment may  be  made  and  referred  to  the  commission  for  action. 
The  necessity  for  the  examination,  of  course  is  now  clear,  provisional 
appointment  having  been  made,  and  in  the  preparation  of  bulletins  all 
provisional  appointments  made  since  the  last  issue  of  the  bulletins  are 
included  for  the  next  issue. 

These  bulletins  are  set  up  by  title  and  grade  from  provisional  ap- 
pointments and  expired  lists,  etc.  This  list  goes  to  the  efficiency  division 
for  specifications,  after  which  it  goes  back  to  the  record  division  and  to 
the  examination  division  for  dates  of  examination,  then  back  to  the 
record  division  for  the  preparation  of  copy  for  the  printer,  after  which 
the  distribution  is  handled  by  the  record  division. 

OTHER    PUBLICITY 

In  addition  to  the  bulletin,  which  is  given  the  widest  circulation 
possible  through  all  the  usual  official  channels  of  the  state,  the  commis- 
sion has  a  publicity  clerk  whose  position  is  unique  in  civil  service  work, 
as  far  as  the  writer  has  been  able  to  ascertain.  This  individual  is  con- 
nected with  one  of  the  Columbus  dailies  and  it  is  through  this  connection 
that  he  is  able  to  present  all  matters  relative  to  examinations  or  pro- 
cedure of  the  commission,  and  any  other  business  relating  to  the  work 
of  the  commission  to  the  people  of  Ohio  as  news.  Thei  salary  paid  this 
publicity  clerk  aggregates  $720.00  per  annum  and  probably  is  the  best 
money  spent  by  the  state  for  publicity. 

PROCEDURE  AFTER  THE  ANNOUNCEMENT  OF  EXAMINATIONS  IN   BULLETINS 

The  examinations  have  been  announced  in  the  official  bulletin  and 
through  other  channels,  and  applications  are  being  received.  These  ap- 
plications come  to  the  record  division,  are  checked  as  to  time  received, 
and  are  sent  to  the  examining  division  where  the  qualifications  are 
checked  and  returned  to  the  record  division,  if  approved.  Cards  of  ad- 
mission are  sent  out.  If  the  applications  are  disapproved  they  are  re- 
ferred to  the  civil  service  commission  with  the  reasons  for  official 
action  of  the  commission. 


ON   ADMINISTRATIVE   REORGANIZATION  75 

One  week  prior  to  the  examinations,  the  examination  clerk  prepares 
a  report  on  appHcations  received  for  the  examinations  to  be  held  in  each 
of  the  five  cities  of  Columbus,  Cleveland,  Cincinnati,  Dayton  and  Toledo, 
and  ample  provision  is  made  for  such  examinations.  After  the  examina- 
tion the  papers  are  returned  to  the  record  division  on  the  night  of  the  ex- 
amination with  the  admission  cards,  which  are  checked  with  the  applica- 
tions. Character  questionnaires  are  sent  to  the  persons  named  as  refer- 
ences in  the  application.  The  examination  clerk  assembles  the  papers 
by  subjects  and  makes  up  grading  sheets  for  each  subject  and  each  ex- 
amination and  sends  to  the  examining  division  for  rating.  After  the 
examining  division  finishes  its  work  the  papers  are  retul-ned  to  the  record 
division  and  tabulation  of  cards  are  made  by  the  examination  clerk  and 
the  final  ratings  are  established.  All  purely  clerical  work  in  this  con- 
nection is  done  in  the  record  division  and  all  eligible  lists  are  prepared 
here.  These  lists  are  then  submitted  to  the  examining  division,  then  the 
civil  service  commission  for  approval,  after  which  they  are  returned  to 
the  record  division  and  cards  of  eligibility  and  failure  are  sent  out  to 
candidates;  eligible  cards  are  prepared  for  the  file  and  typewritten  lists 
are  prepared.  The  report  is  then  made  on  the  eligible  list  showing  the 
eligibles  serving  in  provisional  appointments  anad  requesting  instruc- 
tions as  to  certification.  Before  the  end  of  each  month  the  record  divi- 
sion reports  on  the  eligible  lists  expiring  the  following  month  in  order 
that  action  may  be  taken  terminating  or  extending  the  list. 

ELIGIBLE  LIST  BEING  AVAILABLE 

In  case  there  is  an  eligible  list  available  when  a  requisition  is  made 
the  certification  is  made  by  the  record  division  and  sent  to  the  secretary 
for  his  signature.  Action  on  this  certification  is  expected  within  fifteen 
days.  Persons  certified  are  notified  with  the  reply.  If  no  reply  is  re- 
ceived within  six  days  a  follow  up  certification  is  made.  If  a  waiver  is 
made  another  certification  is  made  as  soon  as  is  possible  in  order  to  keep 
the  fifteen  day  limit  down.  If  there  is  no  report  received  in  fifteen  days 
the  record  division  reports  to  the  civil  service  commission  and  action 
is  then  taken.  The  secretary  writes  a  letter,  a  copy  being  sent  to  the 
record  division  and  referred  to  the  payroll  clerk,  and  a  report  is  made  on 
the  payroll,  if, necessary. 

CERTIFICATION    OF    PAYROLLS 

Roster  cards  are  made  up  from  lists  of  appointments,  also  entered 
on  eligible  lists.  The  roster  cards  are  filed  by  departments  and  also  al- 
phabetically. When  the  pay  rolls  are  sent  to  the  ofifiice  of  the  commission 
the  roll  is  checked  with  cards  on  the  roster  and  notations  of  the  date  of 
checking  same  is  entered  on  the  roster  card.  These  cards  are  filed  in 
"cardex"  files  for  convenience.     The  payrolls  and  the  cards  themselves 


76  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

are  set  up  according  to  the  appropriation  or  apportionment  listing  for 
convenience  in  checking.  If  the  payrolls  do  not  agree  in  detail  with  the 
information  on  the  roster  cards  as  to  title,  salary,  legality  of  appoint- 
ment, date  of  appointment,  etc.,  report  is  made  by  the  payroll  clerk  to 
the  chief  clerk  who  checks  back,  and  if  the  matter  is  found  O.  K.,  is 
approved.  Any  matter  not  approved  by  the  chief  clerk  is  sent  to  the 
commission  for  action  and  if  it  is  not  approved  by  the  civil  service  com- 
mission it  is  so  indicated  and  sent  to  the  auditor  of   state  for  action. 

EXAMINATIONS 

The  examination  procedure  of  a  commission  is  the  feature  of  civil 
service  work  that  will  make  it  successful,  or  cause  it  to  founder  more 
easily  than  any  other  factor,  save  downright  crookedness  throughout 
its  administration. 

The  work  of  the  examination  division  may  be  divided  generally  as 
follows : 

Preparation 

Conduct 

Rating 

All  three  factors  require  ability  above  the  average  and  unquestioned 
probity. 

PREPARATION 

The  specifications  set  up  general  duties  and  qualifications  as  a  basis 
for  examinational  procedure.  The  problem  of  developing  a  schedule  of 
subjects  for  an  examination,  wide  enough  in  scope  to  disclose  all  of  the 
vital  questions  concerning  a  -candidate's  ability  to  perform  certain  duties, 
and  selecting  questions  in  each  subject  that  will  develop  the  detail  with- 
out making  the  examination  too  long  and  arduous  and  at  the  same  time 
disclosing  all  of  the  vital  points  is  a  difficult  one. 

The  oral  examination  is  becoming  more  and  more  valuable  in  ex- 
amination work,  since  without  it,  the  examination  results  much  as  does 
"buying  a  pig  in  a  poke".  The  personahty,  address  and  temperament  of 
candidates  are  so  important,  particularly  in  the  higher  positions,  that 
without  the  oral  examination,  for  their  determination  and  evaluation  a 
good  50%  of  the  examination  is  omitted.  Stenographic  reports  of  all 
oral  examinations  should  be  kept. 

The  preparation  of  questions  and  the  application  of  the  weights 
must  be  done  by  men  who  know  the  work  of  the  position  for  which 
the  examination  is  held.  Every  precaution  must  be  taken  against  the 
leakage  cf  information  of  any  sort  concerning  the  examination. 

CONDUCT  OF   EXAMINATIONS 

Examinations  must  be  conducted  by  experienced  men  familiar  with 
the  advanced  methods  employed  to  secure  unlawful  information,  men 
forceful    enough    to    command    attention    and    resjx^ct    and    courageous 


ON    ADMINISTRATIVE   REORGANIZATION  T] 

enough  to  carry  out  to  the  letter  all  provisions  covering   fraud  in  ex- 
amination. 

The  conditions  of  the  examination  should  be  made  to  conform  as 
closely  as  possible  to  the  usual  office  and  laboratory  conditions. 

RATING 

Probably  there  is  no  work  that  has  been  generally  done  in  so  slip- 
shod a  manner  as  the  rating  of  civil  service  examination  papers.  This 
applies  with  especial  force  to  the  rating  of  papers  in  "experience". 

Schedules  of  rates  should  be  set  up  before  the  work  is  begun  and 
the  rating  done  in  accordance  therewith.  All  ratings  should  be  checked, 
aiid  verified.  In  questions  in  which  there  is  a  reasonable  allowance  for 
judgment  or  opinion,  the  ratings  should  be  brought  to  within  20%  of 
each  other,  if  two  are  rating  the  same  papers,  and  when  a  greater  dif- 
ference exists,  the  ratings  must  be  reconciled. 

In  rating  oral  examinations  the  rating  should  be  done  before  an- 
other candidate  is  examined.  At  least  two  and  preferably  three  examin- 
ers should  do  the  rating,  when  by  the  way,  the  facts  adduced  in  the  ex- 
amination are  the  least  important  part  of  the  work  unless  the  examina- 
tion is  confined  to  the  oral. 

In  all  of  this  work,  as  elsewhere  in  public  service,  100%  honesty 
is  demanded  and  expected. 

The  description  of  the  examination  procedure  that  follows  will  dis- 
close points  of  divergence,  occasionally,  with  the  standards  of  procedure 
ouili.ied  above. 

EXAMINING    DIVISION 

Ihe  examining  division,  while  theoretically  under  the  direct  super- 
vision of  the  chief  examiner  is  practically  under  the  supervision  of  the 
assistant  chief  examiner,  Mr.  Schlesinger.  Mr.  Schlesinger  is  an  en- 
gineer of  wide  experience  who,  as  indicated,  has  general  charge  of  the 
examining  division,  subject,  of  course,  to  the  approval  of  the  chief  ex- 
aminer. Mr.  Schlesinger  also  has  charge  of  the  technical  examinations. 
The  other  examiners  are  Mr.  Bailey  who  has  charge  of  the  examinations 
for  stenographers,  typists,  etc. ;  Mr.  Baker  who  has  charge  of  the  ex- 
aminations for  social  investigators  and  miscellaneous ;  Mr.  Brandt  who 
has  charge  of  the  examinations  for  the  clerical  service,  accountants,  book- 
keepers, etc.  In  addition  to  these  examiners  the  commission  has  recently 
employed  Mr.  Perrin,  who  was  in  the  Psychological  division  of  the  medi- 
cal corps  of  the  United  States  Army,  who  is  giving  examinations  for  the 
skilled  trades,  doing  work  in  connection  with  medical  examinations  and 
is  conducting  psychological  tests  as  checks  on  the  regular  examinations 
held  by  the  commission*.  In  the  skilled  trades,  the  trade  tests  used  in 
the  army  are  being  used  with  great  success.  The  most  that  can  be  said 
now,  possibly,  in  connection  with  the  other  psychological  tests  is  that  they 


78  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

are  a  decidedly  valuable  adjunct,  and  that  they  promise  to  become  a  ver) 
important  part  of  the  work  of  examination  in  the  near  future. 

Mr.  Schlesinger  conducts  the  examinations  held  in  Columbus.  The 
other  examiners  have  no  regular  assignment  but  report  as  assigned  to 
Cleveland,  Toledo,  Columbus,  Dayton,  Cincinnati  and  occasionally  in 
other  cities  and  in  county  seats.  The  rating  is  always  done  by  at  least 
two  examiners  who  check  each  other.  One  of  these  examiners  being  the 
individual  who  prepared  the  examination.  Requests  for  rerating  are  re- 
ceived very  seldom,  there  being  possibly  two  requests  per  bulletin,  that  is, 
about  two  requests  to  twenty-five  examinations. 

Since  Mr.  Schlesinger  has  been  in  charge  of  the  examination  work 
no  ratings  whatever  have  been  changed.  The  oral  examination,  which  is 
a  very  important  feature  of  all  modern  examinations,  has  been  growing 
in  value,  and  is  now  included  in  all  examinations.  Outside  of  Columbus 
it  is  the  regular  examiner,  and  in  those  examinations  held  in  Columbus 
special  examiners  are  often  employed  in  the  examination.  In  lower 
grade  positions,  skilled  and  unskilled  labor,  guards,  etc.,  the  examination 
is  practically  entirely  oral  consisting  essentially  of  trade  questions 
throughout.  No  stenographic  notes  are  kept  as  a  rule,  but  it  is  done  in 
some  cases. 

In  the  unskilled  trades  examination  the  army  tests  are  being  used.  In 
clerical  examination  the  so-called  concentration  tests  are  being  used 
with  splendid  results. 

A  large  number  of  examinations  were  scrutinized  and  studied  for 
the  purpose  of  ascertaining  and  weighing  the  scope  covered  by  the  ex- 
amination, and  the  weights  assigned  to  the  several  subjects  therein.  The 
scope  and  weights,  as  a  general  rule,  show  very  careful  consideration 
of  all  of  the  factors  from  which  these  schedules  must  be  set  up,  and  no 
suggestions-of  any  moment  are  offered  in  connection  with  the  preparation 
of  these  examinations  and  questions.  The  practical  test  in  all  of  the  ex- 
aminations investigated  was  shown  to  be  thorough  and  based  on  the  re- 
quirement of  the  position  itself.  The  use  of  the  army  or  concentration 
tests,  and  the  so-called  "nut"  tests,  together  with  the  general  use  of  the 
oral  examination  indicate  a  spirit  of  progress  that  is  most  commendable. 
Merely  as  an  indicative  of  the  quality  of  the  examination  assistance  that  is 
being  employed  by  the  Ohio  state  commission,  it  is  desired  to  call  at- 
tention to  the  following  list  of  examiners  secured  for  the  examination  for 
District  Health  Commissioners  in  Ohio : 

Ass't.  Surgeon  Allen  J.  McLoughlin,  U.  S.  Public  Health  Service. 

Washington,  D.  C. 
Surgeon  L.  L.  Lumsden,  U.  S.  Public  Health  Service,  Washington. 

D.  C. 
Dr.  Walter  F.  Rankin,  Sec'y.  of  the  State  Board  of  Health.  Raleigh. 

N.  C. 


ON   ADMINISTRATIVE  REORGANIZATION  79 

Mr.  Sherman  Kingsley,  Sec'y.  of  the  Welfare  Federation,  Qeve- 

land,  O. 
Dr.  Otto  P.  Geier,  Cincinnati  Milling  Machine  Co.,  Cincinnati,  O. 

EFFICIENCY  DIVISION 

The  efficiency  division  consists  of  Mr.  Davis  and  Mr.  Rymer,  as- 
sisted by  Miss  Shirner,  all  under  the  general  supervision  of  the  secretary 
of  the  commission.  The  functions  of  the  efficiency  division  are  roughly 
separated  into  two  groups,  those  relating  to  inside  office  work  and  those 
outside  of  the  office.  The  work  inside  of  the  office  is  confined  to  the 
preparation  of  bulletins,  the  preparation  of  standard  entrance  require- 
ments, analysis  of  duties,  the  preparation  of  new  standards  on  new 
positions.  In  the  case  of  promotions  made  without  examination,  the 
efficiency  division  is  expected  to  investigate  the  work  of  the  individual 
whose  promotion  is  requested  and  report  thereon.  The  efficiency  divi- 
sion has  prepared  quite  an  elaborate  list  of  factors  for  consideration  in 
studying  matters  of  service  and  efficiency  and  divided  roughly  into  quality 
of  performance,  and  quantity  or  volume  of  work,  qualities  of  action, 
qualities  of  mentality,  attitude  toward  work  and  physical  fitness.  This 
division  is,  of  course,  charged  with  the  preparation  of  service  records 
and  efficiency  ratings.  Service  records  and  efficiency  ratings  have  not 
been  developed  by  the  efficiency  division.  As  a  matter  of  fact,  there 
has  been  no  system  developed  in  public  service  that  works  with  the  same 
smoothness  that  may  be  expected  in  an  industrial  plant  where  the  quan- 
tity and  quality  of  the  output,  and  its  value  consequently  are  easily 
measured. 

This  fact  should  not  act  as  a  deterrent  to  the  extent  that  nothing 
is  done,  however.  It  will  be  far  better  to  install  a  system,  admittedly 
filled  with  flaws,  and  make  the  attempt  to  apply  it  honestly  through  the 
service,  than  to  wait  for  the  development  of  a  perfect  system  by  some- 
one else.  Should  a  system  evolved  elsewhere,  be  tried,  it  would  in  all 
probability  have  to  be  modified  before  it  would  meet  all  the  requirements 
of  the  Ohio  service.  Nothing  is  gained  by  delaying  and  in  the  mean- 
time promotional  procedure  is  becoming  demoralized. 

Most  of  the  time  of  this  division  is  consumed  in  the  work  of  re- 
surveys.  Resurveys  are  requested  first,  when  it  is  desired  to  make  a 
change  in  the  duties  of  an  individual,  and  second  when  there  is  an  in- 
crease in  compensation  sought.  These  are  necessary  by  reason  of  the 
increasing  volume  of  work  and  the  increase  in  diversity  of  the  functions 
of  the  several  departments. 

The  work  of  the  efficiency  division  is  of  the  sort  that  requires  time, 
and  the  matters  handled  by  it  are  evolved  and  not  made  outright. 

The  changing  conditions  require  resurveys,  a  function  that  enables 
the  commission  to  garner  much  valuable  information,  and  prepare  more 


8o 


REPORT   OF  JOINT   LEGISLATIVE   COMMITTEE 


intelligently  for  examinations.  As  is  indicated  throughout  this  report, 
it  is  felt  that  this  division  should  confine  itself  to  work  in  the  revision  of 
the  specifications  until  it  will  be  impossible  for  a  person  to  qualify  in 
examinations  and  "fall  down  on  the  job". 

The  resurveys  are  made  whenever  requests  for  increase  in  salary  are 
received  on  the  recommendation  of  a  department  head.  In  present  con- 
ditions it  is  hard  to  see  how  any  request  for  increase  could  be  refused, 
and  few  have  been. 

The  division  has  done  much  work  in  research  that  has  not  seen 
the  light  and  as  indicated  above,  ever)'thing  in  the  work  requires  time 
for  its  development  and  acceptance. 

A  county  survey  has  been  started  and  it  should  be  completed.  When 
it  is  realized  that  there  are  seven  counties  in  the  state  whose  service  is 
approximately  equal  to  that  of  the  state,  its  importance  may  be  realized. 

Two  men  cannot  accomplish  much  in  this  work.  A  few  young  men, 
clerks  of  the  right  sort  who  could  do  accurate  reporting  and  help  out  in 
the  routine  work,  would  be  invaluable. 

A  tabulation  of  the  work  of  the  commission,  by  years,  since  accurate 
records  have  been  kept  is  presented  below. 


•o 

Year 

en    4; 

i?, 

1    TS 

"1 

o  a 

•s 

1 

c 
'5 

^v^ 

?K 

o  o. 

sjwi 

3 

'rt 

? 

W 

w 

•z 

^2 

< 

a 

fc 

< 

1915    

164 
220 
185 
257 

154 
174 
163 
255 

4,519 
3,771 
3,427 
2,804 

4,205 
3,582 
3,127 
2,487 

27.3 

20.6 

19.2 

9.7 

2,527 
2,428 
2,025 
1,597 

1,000 
1,012 
1,104 

774 

349 

1916    

498 

1917    

433 

1918 

688 

The  falling  off  during  the  war  is  clearly  indicated  in  the  column 
average  number  examined  per  examination. 

The  figures  for  the  year  1918  show  that  the  commission  was  un- 
usually active  in  holding  examinations  and  that  the  results  of  such  ac- 
tivity were  far  below  the  usual,  and  that  the  apjxjintments  were  more. 

This  state  of  affairs  indicates  the  result  of  war  activities  and  prob- 
ably some  restlessness,  and  thrit  iherc  were  not  the  usual  inducements  to 
take  examinations. 

Probably  the  war  and  the  failure  to  increase  salaries  will  account 
for  |>ractically  all  of  the  diff'ercnccs  noted. 


PROMOTIONS 


A  large  percentage  of  promotions  are  made  without  examinations. 
This  is  done  at  the  request  of  the  department  head,  who  must  give  his 
reasons   for  making  or  suggesting  the   promotion   to  the  civil   service 


ON   ADMINISTRATIVE   REORGANIZATION 


8l 


commission  with  as  much  supporting  data  as  may  be  required  by  the 
commission.  The  commission  then  takes  the  matter  of  promotion  under 
advisement  and  acts  thereon. 

Until  a  detailed  system  of  service  records  is  developed  and  a  logical 
and  just  method  of  rating  these  records  for  efficiency  is  worked  out, 
the  matter  of  promotions  will  never  be  satisfactorily  handled.  The  most 
that  can  be  said  for  many  of  the  systems  that  have  been  devised  and 
put  into  practice  to  accomplish  these  ends,  is  that  they  have  caused  heads 
of  departments  to  thmk  seriously  about  these  matters  and  they  probably 
resulted  in  the  mere  impersonal  regard  of  the  individual  in  connection 
with  the  position.  The  great  thing  in  any  system  of  this  sort,  however, 
is  to  have  whatever  standards  are  applied  applied  with  fairness  and 
justice  throughout  the  range  of  their  applicability. 

The  looseness  in  the  promotional  methods  is  probably  resultant 
larg-ely  from  the  failure  to  install  the  service  records  and  efficiency  rat- 
ings, although  in  lieu  of  an  almost  entire  neglect  to  take  action  on  pro- 
motions, an  examination  that  would  test  the  comparative  fitness  and 
preparation  of  a  candidate  or  preferably  candidates  for  promotion  could 
and  should  be  held. 

The  appointing  officer  should  specify  in  what  particulars  his  can- 
didate or  candidates  are  particularly  distinguished  as  to  service,  and  such 
facts  should  be  submitted  and  verified  in  addition  to  the  examination. 

Without  criticising  appointments  that  have  been  made,  the  neglect 
to  put  the  promotional  system  on  a  purely  competitive  basis,  —  in  which 
"merit"  and  "fitness"  are  the  determining  factors,  with  "seniority"  avail- 
able to  settle  tie  markings,  has  been  a  mistake  and  is  the  one  serious 
criticism  of  the  examining  activities  of  the  commission. 

SUMMARY    OF    RECOMMENDATIONS 

L     The  general  assembly  should  amend  the  law  to: 

1 .  Reduce  the  number  of  exemptions. 

2.  Take  the  labor  service  from  civil  service  jurisdiction. 

3.  Include  a  schedule  of  adequate  salary  standards  and  rates 
in  the  classification. 

4.  Eliminate  the  veteran  preference  clause  from  the  present 
law  and  from  future  law. 

5.  Make  investigations  of  charges  leading  to  dismissal,  prior 
to  the  act  of  discharge,  rather  than  after. 

6.  Make  the  state  civil  service  commission  the  clearing  agency 
for  civil  service  matters  in  the  state. 

n.     The  commission  is  urged  to: 

1 .  Revise  the  classification  and  specifications. 

2.  Develop  a  system  of  service  records  and  ratings. 


82  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

3.  Follow  the  promotional  procedure  as  outlined  and  contem- 
plated, 

4.  Keep  eligible  lists  cleared  on  the  basis  of  availability  for 
employment  by  the  state  or  the  counties. 

5.  Prepare  a  census  of  state  and  county  employes  under  its 
jurisdiction. 

III.     It  is  further  recommended  that  the  joint  legislative  committee 
on  administration  reorganization : 

1 .  Ask  the  civil  service  commission  to  appear  with  records, 
minutes,  etc.,  and  indicate  to  the  committee  the  reason  for 
actions  considered  by  the  committee  to  be  questionable. 

2.  Consider  a  plan  to  give  the  civil  service  commission,  as  the 
personnel  agency  of  the  state,  ample  opportunity  to  be 
heard  in  the  preparation  of  budgetary  requests  for  personal 
service,  before  both  the  governor  and  joint  legislative  com- 
mittee on  budget.  Personal  service  represents  about  one- 
third  of  the  state  budget,  and  the  civil  service  commission 
has  more  data  relevant  to  personal  service  than  any  other 
state  agency. 


STATE  DEPARTMENT  OF  AGRICULTURE 

By  DON  C.  SOWERS, 

SOURCES  OF  INFORMATION 

Conference  with  secretary  of  agriculture  and  heads  of  bureaus  and 
divisions ;  reading  minutes  of  board  and  rules  governing  department ; 
data  submitted  by  heads  of  departments  to  the  committee;  collected  and 
studied  all  the  forms  used  by  the  depaortment;  study  of  annual  and 
special  reports. 

HISTORICAL 

The  first  board  of  agriculture  was  established  in  1846.  It  consisted 
of  53  members  but  the  number  was  reduced  the  following  year  to  10. 
The  most  important  activity  of  the  board  during  the  first  quarter  of  a 
century,  was  holding  the  annual  state  fair.  The  fair  was  held  at  various 
cities  in  the  state  from  1850  to  1874,  when  it  was  permanently  located  in 
Columbus. 

In  1880,  the  board  began  to  collect  and  publish  crop  and  stock 
statistics  and  later  county  auditors  were  required  to  compile  agricultural 
statistics,  returned  by  township  assessors. 

The  inspection,  analysis  and  supervision  over  the  sale  of  commercial 
fertilizers  began  in  1881  and  the  scope  of  these  activities  was  subse- 
quently increased  to  include  feed  stuffs,  lime,  insecticides,  fungicides 
and  seeds. 

In  1886,  the  fish  and  game  commission  was  created  as  a  separate 
department.  In  1902,  two  important  developments  took  place ;  the  board 
of  agriculture  was  constituted  the  state  board  of  live  stock  commissioners, 
and  a  division  of  nursery  and  orchard  inspection  was  created. 

A  consolidation  of  the  agricultural  services  was  effected  in  191 3  by 
the  creation  of  the  agricultural  commission,  composed  of  four  members 
appointed  by  the  governor  at  salaries  of  $5,000  each.  This  commission 
was  given  control  over  all  the  activities  of  the  board  of  agriculture  and 
in  addition,  the  following  departments  or  commissions  were  abolished 
and  placed  under  this  commission : 

Dairy  and  food  commissioner. 

Fish  and  game  commission. 

Board  of  control  of  the  agricultural  experiment  station. 

Two  years  later  the  board  of  control  was  re-established  as  an  inde- 
pendent department  and  the  present  department  of  agriculture  was 
created. 

83 


84  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 


PRESENT   ORGANIZATION 

The  board  of  agriculture  at  the  present  time  consists  of  ten  mem- 
bers appointed  by  the  governor  with  the  advice  and  consent  of  the  Senate ; 
two  for  one  year,  two  for  two  years,  two  for  three  years,  two  for  four 
years,  and  two  for  five  years.  Not  less  than  six  members  must  be 
practical  farmers.  The  members  are  unsalaried  and  receive  actual  ex- 
penses. The  board  elects  a  secretary,  appoints  heads  of  bureaus,  assist- 
ants, and  employees.  Monthly  meetings  are  held.  An  annual  meeting  is 
held  in  January  with  the  presidents  and  delegates  of  county  agricultural 
societies  for  the  purpose  of  considering  the  wants,  prospects  and  condi- 
tions of  agriculture  throughout  the  state.  It  is  required  to  hold  an  annual 
state  fair. 

The  work  of  the  department  is  at  present  organized  under  the  fol- 
lowing bureaus : 

Bureau  of  fair  administration. 
Bureau  of  live  stock  industry. 
Bureau  of  fish  and  game. 
Bureau  of  feeds  and  fertilizers. 
Bureau  of  dairy  and  food  inspection. 
Bureau  of  horticulture, 
Bureau  of  markets. 
Bureau  of  agricultural  statistics. 

The  law  provides  also  for  the  establishment  of  a  state  chemical  and 
bacteriological  laboratory,  but  up  to  the  present  time,  this  work  has  been 
handled  by  the  laboratory  of  the  state  board  of  health. 

The  total  appropriation  for  the  department  for  the  year  ending 
June  1920  was  $704,695. 

BUREAU    OF    FAIR    ADMINISTRATION 

The  work  of  this  bureau  is  the  management  of  the  state  fair.  Pro- 
vision is  made  in  the  budget  for  a  chief  of  the  bureau,  a  superintendent 
of  fair  grounds  and  stenographic  service.  An  annual  appropriation  is 
made  for  the  purposes  of  the  state  fair,  which  amounted  to  $110,000  plus 
$10,000  for  repairs  at  the  fair-grounds  in  1919. 

The  annual  report  for  the  year  1919  shows  that  the  total  receipts 
at  the  state  fair  amounted  to  $147,822  and  the  total  expenditures  to 
$121,405,  making  a  net  profit  of  $26,417.  This  report  further  states 
that  there  is  need  for  more  grounds  and  buildings,  for  housing  patrons 
in  a  grand  stand  and  assembly  hall,  for  parking  space  for  automobiles, 
for  display  space  for  machinery  and  implements,  and  barns  and  sheds 
for  housing  live  stock.  It  is  stated  that  a  grand  stand  which  will  accom- 
modate 20,000  ])ersons  is  needed  and  that  if  built,  there  will  be  an  in- 
crease in  receipts  from  $17,000  to  $35,000. 


ON   ADMINISTRATIVE   REORGANIZATION  85 

During  1918,  there  were  -]-]  county  and  16  independent  fairs  held 
within  the  state.  The  amount  paid  to  these  societies  amounted  to  $58,571 
or  an  average  of  $629.80.  Four  counties  and  a  number  of  independent 
fairs  received  no  aid  because  of  faikire  to  conform  to  the  laws  relating  to 
the  organization  of  agricultural  societies. 

BUREAU    OF    LIVE    STOCK    INDUSTRY 

The  function  of  this  bureau  is  the  protection  of  the  live  stock  of  the 
state.  It  seeks  to  prevent  the  spread  of  infectious  and  contagious  dis- 
eases among  domestic  animals.  Horses  are  examined  and  tested  for 
glanders,  cattle  for  tuberculosis,  swine  for  cholera  and  sheep  for  lip  and 
leg  disease,  scab,  foot  rot  and  nodular  diseases.  The  number  and  value 
of  live  stock  in  the  slate  in  191 9  was  as  follows : 

Number  Value 

Horses                  862,467  $74,884,011 

Cattle       '              1,768,908  89,494,662 

Mules    '*.....'. 32,277  3,191,885 

Sheep           •••       1,789,919  16,837,653 

Hogs    .....v.... 2,304,459  37,783,506 

Total   Value    $222,195,717 

The  organization  consists  of  a  state  veterinarian,  assistant  veterin- 
arian, 14  field  veterinarians,  and  a  small  office  and  stenographic  force. 
The  department  works  in  close  co-operation  with  the  Bureau  of  Animal 
Industry  of  the  United  States  Department  of  Agriculture,  which  has 
about  12  veterinarians  stationed  in  the  state  continuously. 

A  serum  plant  is  operated  on  a  farm  near  Columbus,  at  which  is 
employed  a  pathologist,  assistant  pathologist,  bacteriologist  and  five  or. 
more  laborers.  Tuberculin  and  hog  cholera  serum  is  manufactured  here 
and  shipped  by  parcel  post  over  the  state.  Tuberculin  is  furnished  free 
to  the  people  of  the  state  and  hog  cholera  serum  is  sold  at  one  cent  per 
cubic  centimeter.  The  proceeds  from  the  sale  of  serum  exceeds  the  cost 
of  operating  the  serum  plant  and  farm.  A  rotary  fund  has  been  suggested 
as  a  means  of  overcoming  the  handicap  which  the  plant  works  under  in 
not  being  able  to  secure  a  sufficient  number  of  farm  laborers  due  to  the 
fact  that  the  hourly  compensation  is  fixed  at  too  low  a  figure  in  the 
annual  budget. 

The  cost  of  operating  this  bureau  could  not  be  obtained  without 
making  an  analysis  of  the  expenditures  of  the  department.  The  following 
items  in  the  1920  appropriation  act  could  be  identified  as  belonging  to 
this  bureau.  Personal  service  about  $45'00O>  Pigs  for  serum  plant 
$70,000,  experimental  work  on  diseases  of  animals  $2,500,  state  share  of 
pay  due  owners  of  tubercular  cattle  killed  according  to  law  $60,000,  state 


86  REPORT   OF  JOINT  LEGISLATIVE  COMMITTEE 

share   of  pay   due   owners   of   glandcred  horses   killed   $18,000.    Total 
$195,500. 

The  state  board  of  veterinar)'  examiners  consists  of  3  members,  ap- 
pointed by  the  governor,  one  each  year  for  six  year  terms,  together  with 
the  secretary  of  the  board  of  agriculture  and  commissioner  of  health  who 
are  exofficio  members.  This  board  is  required  to  meet  during  April 
and  July  for  the  purpose  of  examining  and  licensing  veterinarians.  The 
members  receive  $3.00  per  day  and  necessary  traveling  expenses.  A  fee 
of  $2.50  is  charged  those- who  present  diplomas  from  accredited  veterin- 
ary schools  and  $5.00  those  who  must  take  an  examination. 

The  functions  performed  by  this  board  are  similar  in  character  to 
those  performed  by  other  registration  and  licensing  boards  for  other 
professions  such  as  acountancy,  dentistry,  medicine,  etc.  In  the  interest 
of  economy  and  efftciency,  this  work  should  be  done  by  a  single  division 
of  registration  for  all  professions.  It  is  therefore  recommended  that 
this  board  be  abolished  and  the  duties  of  the  board  be  transferred  to  the 
division  of  registration. 

According  to  a  ruling  of  this  bureau,  farmers  cannot  receive  com- 
pensation for  tubercular  cattle  slaughtered  unless  the  cattle  are  ex- 
amined by  veterinarians  employed  by  the  department.  Furthermore,  the 
veterinarians  of  the  department  will  not  make  an  examination  of  cattle 
if  they  have  been  previously  examined  by  licensed  veterinarians.  The 
operation  of  this  ruling  results  in  grave  injustice  to  those  farmers  who 
through  ignorance  or  otherwise  do  not  go  at  once  to  the  department  and 
secure  a  veterinarian  to  do  the  examining.  The  licensed  veterinarians 
do  not  always  inform  the  farmers  of  the  ruling  of  the  department.  The 
result  is  that  the  farmer  who  goes  directly  to  the  department  for  a 
veterinarian  secures  compensation,  whereas  another  farmer  living  across 
the  road  who  goes  to  a  licensed  veterinarian  for  the  examination,  will 
receive  no  compensation.  The  evident  intent  of  the  law  was  the  eradica- 
tion of  tuberculous  cattle  and  this  was  to  be  made  possible  without  work- 
ing serious  hardship  upon  the  owners  of  cattle  by  allowing  them  compen- 
sation for  cattle  which  had  to  be  destroyed.  It  certainly  was  not  the 
intent  of  the  law  to  operate  unjustly  and  it  is  therefore  recommended 
that  the  ruling  should  be  changed  so  to  correct  this  injustice.  If  tlie 
department  takes  the  stand  that  in  order  to  receive  compensation  for 
tuberculous  cattle  slaughtered  they  must  be  examined  by  an  emploj^ee  of 
the  department,  then  they  should  employ  sufficient  veterinarians  to  make 
all  the  examinations  required  and  the  previous  examination  by  a  licensed 
veterinarian  should  noi  operate  to  prevent  a  rc-examination  and  compen- 
sation. 

DAIRY    AND   FOOD  DIVISION 

The  state  dairy  and  food  commissioner  was  originally  an  elective 
official,  chosen  for  a  two  year  term.  The  office  was  abolished  and  the 
duties  transferred  to  the  agricultural  commission  in   1913  and  the  state 


ON   ADMINISTRATIVE   REORGANIZATION  87 

board  of  agriculture  which  supplanted  this  commission  in  191 5  became 
vested  with  the  duties  of  this  office.  The  work  is  now  carried  on  by  a 
bureau  of  dairy  and  food  inspection. 

The  functions  performed  by  this  bureau  are  the  enforcement  of  the 
food  and  drug  laws  of  the  state  against  fraud,  adulteration,  or  impurities 
in  food,  drink  and  drugs,  and  unlawful  labelling;  making  sanitary  inspec- 
tions of  groceries,  meat  markets,  restaurants,  confectioneries,  milk  plants, 
dairies,  cream  stations,  creameries,  condenseries,  canneries,  bottling 
plants  and  cheese  factories.  Enforcement  of  the  narcotic  drug  law. 
Testing  and  adjusting  the  working  standards  of  county  and  city  sealers 
of  weights  and  measures. 

The  personnel  of  the  bureau  consists  of  28  persons  as  follows :  chief, 
9  food  inspectors,  5  dairy  inspectors,  4  drug  inspectors,  2  narcotic  in- 
spectors, one  cannery  inspector,  2  inspectors  of  weights  and  measures, 
2  clerks,  a  stenographer,  messenger  and  janitor.  The  total  appropriation 
for  the  bureau  for  1920  was  $63,215. 

During  the  year  ending  July,  1919,  the  15  dairy  and  food  inspectors 
made  11,365  inspections  of  stores,  plants  and  food-handling  establish- 
ments. The  report  does  not  state  the  number  of  orders  issued  and  the 
number  complied  with.  1686  samples  of  milk  and  cream  were  analyzed 
and  about  1000  samples  of  drugs  and  foods.  The  total  number  of  articles 
analyzed  in  all  the  laboratories  was  2,005.  ^8  prosecutions  were  filed 
by  the  state  inspectors  and  $7044  was  collected  in  fines  and  fees. 

The  districts  into  which  the  state  is  divided  for  dairy  and  food  in- 
spection purposes  are  governed  largely  by  the  place  where  the  inspectors 
happen  to  live.  The  bureau,  according  to  a  statement  of  its  chief,  does 
not  possess  authority  to  condemn  unsaleable  food  articles;  it  can  only 
prosecute.  No  license  is  required  for  any  class  of  business  except  bot- 
tling plants;  the  effectiveness  of  inspection  under  such  conditions  should 
be  at  once  apparent.  Experience  has  shown  that  the  only  effective  method 
of  securing  results  in  inspection  work  is  to  compel  the  taking  out  of 
licenses  which  may  be  revoked  upon  failure  to  comply  with  the  orders  of 
inspectors.  The  division  should  possess  by  all  means  the  authority  to 
condemn  and  destroy  unsaleable  food  products. 

It  must  be  apparent  at  once  that  such  a  small  group  ol  inspectors 
cannot  inspect  all  the  groceries,  restaurants,  dairies,  etc.,  in  the  state  of 
Ohio.  Any  attempt  to  do  this  must  result  in  spreading  the  efforts  so  thin 
as  to  be  of  little  real  value.  Instead  of  attempting  to  make  detailed  in- 
spections, the  division  should  devote  its  energies  to  supervising,  assisting 
and  developing  the  inspectional  services  of  municipalities  and  counties. 
Standard  rules  and  regulations  can  be  promulgated.  Technical  assist- 
ance can  be  given  local  units  and  intensive  work  can  be  done  in  localities 
which  are   interested   in   improving  insanitary  conditions. 

The  functions  performed  by  this  bureau  are  strictly  executive  and 
have  to  do  with  the  enforcement  of  the  food  and  drug  laws  and  securing 


88  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

sanitary  conditions  in  places  where  food  is  held  and  sold.  It  has  nothing 
whatever  to  do  with  the  promotion  and  development  of  the  dairy  in- 
dustry of  the  state,  and  therefore  its  work  is  not  closely  related  to  that 
of  the  board  of  agriculture. 

A  study  of  the  present  status  of  the  dairy  and  food  control  work 
in  the  United  States  shows  that  the  work  is  performed  by  various  de- 
partments of  state  government :  some  of  the  dairy  and  food  divisions  are 
separate  independent  executive  departments,  as  for  example,  several 
states  have  dairy  and  food  commissioners,  food  and  drug  commissioners, 
etc.;  some  are  divisions  of  departments  of  agriculture;  some  are  divisions 
of  departments  of  health;  some  are  divisions  of  agriculture  experiment 
stations  and  some  are  mixtures  of  several  executive  departments  and 
educational  institutions.  Apparently  very  little  attention  has  been  given 
to  the  proper  location  of  such  agencies.  Good  work  and  poor  work  has 
been  done  under  both  types  of  organization  and  hence  a  conclusion  as  to 
which  department  should  have  authority  over  this  work  cannot  be  de- 
termined on  the  basis  of  the  results  accomplished  in  other  states. 

The  following  facts  point  to  the  conclusion  that  the  logical  place 
for  this  department,  in  Ohio  anyway,  is  under  the  department  of  health : 

1.  The  inspection  of  food  and  drugs  and  the  sanitary  inspection  of 
food-handling  establishments  and  dairies  is  essentially  a  matter  of  public 
health.  Health  authorities  must  concern  themselves  with  the  prevention 
of  the  sale  of  unclean  and  impure  milk  and  dangerously  contaminated 
food  whether  specifically  charged  with  the  enforcement  of  the  food  laws 
or  not.  An  examination  of  the  milk  supply  is  frequently  necessary  in 
checking  the  spread  of  certain  contagious  diseases,  as  for  example, 
typhoid  fever.  The  infant  mortality  of  more  than  one  city  has  been  re- 
duced by  improving  the  quality  of  the  milk  supply. 

2.  Local  health  authorities  in  the  cities  and  towns  of  Ohio  are 
charged  with  the  control  of  the  milk  supply,  food  inspection  and  sanitary 
inspections,  and  it  is  desirable  that  the  state  health  department  should 
exercise  control  and  supervision  over  their  activities  apd  that  they 
should  turn  to  the  state  health  department  for  advice  and  guidance  in 
the  solution  of  their  local  problems. 

3.  The  analyses  of  food  and  drugs  and  milk  samples  which  are  col- 
lected by  the  dairy  and  food  and  drug  inspectors  are  made  by  the  labora- 
tory of  the  state  board  of  health  and  it  would  be  advantageous  to  place 
the  supervision  of  all  the  work  in  the  same  department. 

4.  The  work  of  this  bureau  as  it  is  now  functioning  has  nothing 
whatever  to  do  with  the  promotion  and  development  of  the  dairy  in- 
dustry. It  exists  solely  for  the  purpose  of  protecting  the  health  of  the 
consumer.  Apparently  no  co-operation  exists  between  this  bureau  and 
the  bureau  of  animal  industry  by  way  of  reporting  herds  suspected  of 
containing  tuberculous  cattle. 


ON   ADMINISTRATIVE   REORGANIZATION  89 

For  these  reasons,  it  is  recommended  that  the  inspectional  work  of 
the  bureau  of  dairy  and  food  inspection  relating  to  food,  drugs  and 
sanitary  inspections,  be  transferred  to  the  board  of  heahh.  The  inspec- 
tion of  weights  and  measures  should  either  be  transferred  to  the  bureau 
of  markets  or  to  the  bureau  of  standards,  if  it  is  decided  to  create  such 
a  bureau. 

BUREAU   OF   FEEDS    AND    FERTILIZERS 

The  purpose  of  this  bureau  is  to  make  available  to  farmers,  garden- 
ers, and  others,  reliable  information  relative  to  the  composition  and 
value  of  fertilizers,  agricultural  lime  and  limestone,  which  are  offered 
for  sale.  It  performs  the  same  function  with  respect  to  food  stuffs,  in- 
secticides, fungicides  and  seeds. 

The  force  consists  of  a  chief  inspector,  4  field  inspectors,  2  stenog- 
raphers and  clerk.  The  analysis  of  samples  is  done  by  the  laboratory  of 
the  state  board  of  health.  Dealers  are  required  to  be  licensed  before 
offering  these  articles  for  sale  and  infoiTnation  setting  forth  the  ingre- 
dients of  each  brand  is  required  to  be  affixed  to  each  bulk  or  package.  An 
analysis  of  each  brand  is  required  to  be  made  once  each  year.  The 
result  of  these  analyses  is  published  by  the  bureau  for  distribution. 

BUREAU   OF   FISH    AND   GAME 

The  function  of  this  bureau  is  the  conserv^ation,  protection  and 
propagation  of  fish,  game  and  wild  life.  The  bureau  operates  seven  fish 
hatcheries ;  six.  of  these  are  for  the  purpose  of  re-stocking  inland  waters 
of  the  state  with  game  fish  and  one  of  these,  the  Put-in-Bay  hatchery 
on  Lake  Erie,  produces  commercial  fish.  It  is  stated  that  five  hundred 
million  fish  eggs  are  hatched  annually  at  this  hatchery.  A  patrol  boat, 
manned  by  a  captain,  engineer,  fireman  and  deck  hand,  is  employed  in 
enforcing  fish  laws  on  Lake  Erie.  A  fish  car  "Buckeye"  is  used  in  con- 
veying fish  from  the  hatcheries  to  inland  streams. 

A  game  farm  comprising  two  hundred  acres  is  owned  and  operated 
at  Wellington  in  Lorain  county  for  the  purpose  of  rearing  pheasants. 
Pheasant  eggs  are  shipped  to  various  sections  of  the  state  to  be  hatched 
by  sportsmen  and  farmers  and  then  liberated.  Over  fifty  game  refuges 
or  sanctuaries  have  been  established  where  the  natural  wild  life  may 
propagate  itself  unmolested. 

A  purifying  system  has  been  perfected  by  the  bureau  for  purifying 
the  waters  of  streams  which  have  become  polluted  by  manufacturing 
wastes  and  therefore  made  uninhabitable  for  fish. 

The  personnel  of  the  department  is  as  follows :  one  chief,  one  as- 
sistant chief,  three  clerks  and  three  stenographers ;  superintendent 
of  pollution;  supervisor  of  Lake  Erie  district;  superintendent,  engineer, 
fireman  and  two  hatchery  men  at  Put-in-Bay  hatchery ;  six  superintend- 
ents of  hatcheries  and  one  or  two  laborers  located  at  the  following  hatch- 


9b  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

eries:  London,  Chagrin  Falls,  St.  Marys,  Akron,  Newton  and  one  in 
Pike  county;  at  the  game  farm  there  is  a  superintendent  and  game 
keeper,  a  farmer  and  several  laborers ;  a  crew  is  in  charge  of  the  patrol 
boat,  "Oliver  H.  Perry"  and  a  man  is  assigned  to  the  fish  car.  In  ad- 
dition fifty  salaried  game  wardens  are  employed  throughout  the  year 
and  twelve  game  wardens  are  employed  for  six  months.  Two  himdred 
and  fifty  non-salaried  wardens  lend  what  assistance  they  can  in  enforcing 
the  fish  and  game  laws  of  the  state. 

The  revenue  of  the  bureau  for  the  year  1918  amounted  to  $201,480 
divided  as  follows :  hunters'  license  $165,975,  license  fees  paid  by  fishing 
boats  on  Lake  Erie  $18,125,  fines  $16,185  and  all  other  $1,194.  The 
expenses  of  the  bureau  for  the  same  year  amounted  to  $162,282. 

Two  plans  have  been  suggested  for  increasing  the  revenue  of  this 
bureau.  The  bureau  in  its  sportsmen's  bulletin  suggests  an  angler's 
license  fee  of  fifty  cents  a  year  and  the  auditor  of  state  in  his  annual 
report  for  1918  suggests  increasing  the  license  fees  paid  by  fishing  boats 
on  Lake  Erie. 

BUREAU    OF    HORTICULTURE 

The  function  of  this  bureau  is  the  protection  of  the  orchards  and 
nurseries  of  the  state  through  the  prevention  and  control  of  insect  pests 
and  plant  diseases.  In  addition  the  bureau  has  charge  of  the  inspection 
of  apiaries,  and  the  prevention  and  control  of  the  disease  known  as  the 
"American  foul  brood". 

The  personnel  of  the  bureau  consists  of  the  chief,  six  inspectors  and 
a  stenographer.  The  inspection  of  three  hundred  and  twenty- four 
nurseries  in  the  state  is  made  annually  and  a  charge  is  made  for  this 
service  in  accordance  with  the  schedule  of  fees  fixed  by  law.  Dealers 
in  nursery  stock  and  their  agents  are  required  to  take  out  licenses.  Last 
year  fifty-five  dealers  and  two  hundred  and  fifty- four  agents  were 
licensed.  The  nursery  stock  imported  from  foreign  countries  must  be 
inspected  and  goods  shipped  out  of  the  state  must  be  fumigated  and  have 
a  certificate  affixed. 

The  duties  of  this  bureau  with  respect  to  orchard  inspection  consist 
in  giving  advice  to  fruit  growers  and  in  co-operating  with  the  state  uni- 
versity in  pruning  and  spraying  and  demonstrative  work.  An  annual 
state  apple  show  is  held  in  co-operation  with  the  state  horticultural 
society  and  the  chief  of  this  bureau  acts  as  superintendent  of  the  horti- 
cultural building  during  the  state   fair. 

Upon  request  inspectors  visit  apiaries,  disinfect  and  destroy  diseased 
bees  and  co-operate  with  bee  keepers  in  the  eradication  of  diseases  which 
attack  bees. 

The  annual  cost  of  tliis  bureau  is  about  $20,000  and  the  revenue 
about  $2,500. 


ON   ADMINISTRATIVE  REORGANIZATION  9I 

BUREAU    OF    AGRICULTURAL    STATISTICS 

The  work  of  this  bureau  is  performed  in  co-operation  with  the  fed- 
eral bureau  of  crop  estimates. 

The  office  personnel  consists  of  a  chief  of  the  bureau  and  a  clerk 
who  are  on  the  stafit"  of  the  federal  bureau  of  crop  estimates  and  two 
collaborators  employed  by  the  department  of  agriculture.  The  field  per- 
sonnel consists  of  sixteen  hundred  general  crop  correspondents  who  work 
without  compensation  other  than  free  passes  to  the  state  fair.  A  special 
list  of  correspondents  are  secured  for  the  purpose  of  collecting  informa- 
tion on  special  subjects, 

The  regular  work  consists  in  tabulating  information  received  from 
the  crop  correspondents  and  disseminating  this  information.  The  in- 
fonnation  on  crops  is  mailed  to  all  the  papers  in  the  state  as  well  as 
to  outside  farm  and  trade  papers.  It  is  also  published  in  the  official 
bulletin  and  monthly  Crop  Reporter,  a  publication  of  the  federal  bureau 
of  crop  estimates  and  in  the  market  news  and  exchange  bulletin.  The 
abstract  of  agricultural  statistics  compiled  from  returns  made  by  town- 
ship assessors  to  county  auditors  is  edited,  checked  and  published  by 
this  bureau.  From  time  to  time  special  surveys  are  made,  as  for  example, 
during  the  past  year  a  survey  was  made  of  Ohio  maple  sugar  products 
and  of  the  live  stock  industry. 

BUREAU  OF  MARKETS 

A  start  has  been  made  toward  the  development  of  a  bureau  of 
markets.  A  comprehensive  law  dealing  with  this  subject  has  been 
passed  but  up  to  the  present  time  funds  have  not  been  available  for  the 
development  of  the  work.  The  personnel  of  the  bureau  consists  of  the 
chief,  a  deputy  inspector  and  one  or  two  stenographers. 

The  plans  of  the  bureau  contemplate  an  enlargement  along  the  fol- 
lowing lines.  The  following  estimate  of  the  cost  of  enlargement  was 
made  in  a  report  submitted  by  Mr.  Croxton  and  Dr.  J.  E.  Haggerty  to 
the  governor  and  attorney  general. 

1.  Division  of  Information  and  Market  News  Service. 

This  bureau  would  collect  and  disseminate  reliable  marketing  in- 
formation relative  tO'  supply,  prices,  commercial  movement,  commodities 
held  in  cold  storage,  etc.,  to  both  consumers  and  producers.  It  is 
thought  that  with  such  facts  placed  clearly  before  the  people  their  co- 
operation could  be  secured  in  preventing  unreasonable  prices  and  in 
adopting  better  methods  of  distribution.  The  estimated  cost  of  this 
service  has  been  figured  at  $9,850. 

2.  Division  of  Co-operative  Organization. 

The  function  of  this  division  would  be  to  develop  co-operative  groups 
of  consumers  and  producers  along  the  lines  of  the  Rochdale  societies  in 


92  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

England,  and  the  development  of  commercial  or  motor  truck  lines  for 
the  distribution  and  marketing  of  farm  products.  For  this  service  a 
budget  of  $8,350  has  been  suggested. 

3.  Division  of  Standards. 

The  ftmction  of  this  division  would  be  the  promulgation  and  en- 
forcement of  reasonable  trade  standards  and  to  conduct  the  educational 
and  inspectional  work  necessary  to  lead  producers  to  conform  to  these 
standards.     For  this  work  a  budget  of  $14,750  has  been  suggested. 

4.  Division  of  Public  Markets. 

The  function  of  this  division  would  be  to  encourage  and  assist  local 
communities  in  establishing  public  retail  markets  suited  to  their  needs ; 
it  should  also  encourage  and  assist  larger  cities  in  establishing  whole- 
sale markets.     For  this  work  a  budget  of  $6,000  has  been  suggested. 

The  total  amount  of  the  suggested  budgets  for  the  four  divisions 
enumerated  is  $39,350.  With  the  inception  of  the  work  indicated,  the 
salaries  of  the  director  and  his  assistant  would  need  to  be  increased 
and  the  added  general  expenses  would  bring  the  total  budget  of  the 
bureau  to  approximately  $43,000. 

The  above  outline  has  for  its  object  not  only  assisting  the  producer 
in  the  marketing  of  his  products  but  it  also  contemplates  a  service  to 
consumers  through  the  dissemination  of  information  and  the  develop- 
ment of  proper  standards  and  grades  for  all  products.  There  would 
seem  to  be  no  reason  why  this  work  might  not  successfully  be  undertaken 
by  the  bureau  of  markets  as  one  of  the  divisions  of  the  department  of 
agriculture  and  it  is  therefore  recommended  that  steps  should  be  taken 
without  delay  to  enlarging  the  activities  of  this  bureau  in  accordance 
with  the  scheme  outlined  above. 

recommendations 

That  the  board  of  agriculture  be  abolished  amd  that  the  admin- 
istrative duties  now  performed  by  the  board  be  treuisfenred  to  a 
director  of  agriculture  who  would  be  appointed  by  the  governor. 

The  present  board  of  agriculture  was  created  in  1915  and  was  given 
large  administrative  powers  and  duties.  The  next  legislature  which  met 
in  191 7  amended  the  law  governing  this  department  so  as  to  confer  a 
large  part  of  the  administrative  duties,  which  had  formerly  been  per- 
formed by  the  board  of  agriculture,  upon  the  secretary.  The  act  was 
revised  throughout  by  striking  out  "board  of  agriculture"  and  inserting 
the  word  "secretary".  The  time  has  now  arrived  for  the  linal  strp. 
namely,  placing  all  the  purely  administrative  and  executive  tluties  in 
the  hands  of  a  director  of  the  department.  The  evident  purpose  of  hav- 
ing a  large  board  of  ten  members  was  to  bring  to  bear  iii>on  the  agri- 


ON    ADMINISTRATIVE   KRORGANIZATION  93 

cultural  problems  of  the  state  the  advice  and  counsel  of  the  leading 
agricultural  and  business  men  of  the  state.  This  fmiction  has  been  inter- 
fered with  to  some  extent  by  compelling  these  men  to  assume  adminis- 
trative duties.  Both  the  department,  itself,  and  the  state  would  benefit 
by  relieving  these  men  of  routine  executive  duties  and  permitting  them 
to  devote  all  their  time  when  in  session  to  the  consideration  of  the  agri- 
cultural interests  of  the  state.  If  flesired  an  advisory  board  might  be 
created  for  this  purpose. 

Experience  has  shown  that  an  administrative  board  is  of  itself 
objectionable.  Its  very  existence  means  delay  since  all  important  ques- 
tions must  await  the  next  meeting  of  the  board.  Responsibility  for  action 
is  diffused  among  the  board  members  and  prompt  action  is  seldom  taken. 
If  the  board  is  active  and  interferes  with  the  management  of  the  depart- 
ment factions  develop  among  board  members  and  the  work  of  the  de- 
partment is  obstructed.  If  the  board  is  inactive  and  becomes  merely  a 
rubber  stamp  for  executive  action  the  public  is  lulled  into  a  false  sense 
of  safety  by  the  supposed  protective  board. 

An  examination  of  the  minutes  of  the  board  of  agriculture  shows 
that  at  each  session  the  board  has  acted  upon  a  large  number  of  purely 
administrative  matters  such  as  the  approval  of  appointments,  promotions 
and  dismissal  of  employes  concerning  which  the  board  has  little  knowl- 
edge and  little  time  or  opportunity  to  investigate,  consequently,  it  must 
rely  almost  wholly  upon  the  decision  of  its  secretary.  Better  results 
would  be  secured  if  all  such  purely  administrative  matters  were  left  to 
the  discretion  of  the  executive  ofhcer  and  the  board  confined  itself  to 
the  task  of  furnishing  advice,  suggestion  and  guidance  to  the  administra- 
tive officer. 

That  the  Inspectional  work  of  the  bureau  of  dairy  and  food  in- 
spection be  treuisferred  to  the  board  of  health  and  the  inspection  of 
weights  and  measures  be  transferred  to^  the  bureau  of  standards 
in  the  department  of  trade  and  commerce  or  to  the  bureau  of  markets. 

The  reasons  for  this  are  set  forth  in  the  text  of  this  report. 

That  the  state  board  of  veterinary  examiners  be  abolished  and 
the  duties  of  this  board  be  transferred  to  the  division  of  registration 
in  the  department  of  education. 

That  the  bureau  of  markets  be  enlarged  in  accordance  with  the 
outline  described  in  the  text  of  this  report. 

That  an  operation  study  be  made  of  the  department. 

Several  of  the  departments  issue  licenses  and  collect  fees.  It  is 
suggested  that  if  all  of  this  work  were  centralized  in  one  office  under 
the  director  of  agriculture  considerable  saving  might  be  eft'ected  through 
the  elimination  of  one  or  more  positions. 


94  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

That  the  budget  of  the  department  should  be  so  arranged  as  to 
show  at  a  glance  the  cost  of  each  bureau. 

Both  the  secretary  of  the  department  and  the  budget  commissioner 
are  interested  in  knowing  the  actual  cost  of  operating  each  bureau  and 
by  different  re-arrangement  of  the  budget  items  this  information  would 
be  readily  available  without  additional  effort.  The  fees  charged  .by 
several  of  the  bureaus  are  supposed  to  be  sufftcient  merely  to  cover 
the  cost  of  operation  'and  this  should  be  an  added  incentive  toward  a 
better  system  of  budget  making. 


THE  ORGANIZATION  OF  STATE  FARMS 

UNDER  THE  CONTROL  OF  THE  BOARD 

OF  ADMINISTRATION 


Prepared  Under  the  Direction  of 

DON  C.  SOWERS, 

By  PROF.  J.  FALCONER, 

Ohio  Stat*  University 


Of  the  21  institutions  under  the  control  of  the  state  board  of  admin- 
istration, i6  have  tracts  of  land  comprising  over  loo  acres.  Statistics 
of  their  forage,  grain,  vegetable  and  dairy  production  are  given  below. 
The  grain  and  forage  crop  acreage  relates  to  the  crop  year  of  1918  since 
information  for  1919  was  not  all  available  at  the  time  of  making  this 
report. 


ON   ADMINISTRATIVE  REORGANIZATION 


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REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 


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ON   ADMINISTRATIVE   REORGANIZATION  *   97 

MILK  PRODUCTION  PER  COW  ON  STATE  FARMS. 

Lbs.  Milk         Lbs.  Milk 
per  Cow  per  Cow 

July  I,  1918  July  I,  igig 

No.  of  Cows    to  June  30,  to  Sept.  jo, 
June  30,   19 19          19 19  19 19 

Athens   Hospital    77  8786  2210 

Dayton   Hospital    97  7075  1691 

Lima  Hospital    22  5580  No  data 

Longview  Hospital    44  5350  No  data 

Massillon  Hospital   •. 93  7578  1764 

Toledo   Hospital    60  8339  2121 

Ohio  Hospital  for  Epileptics 91  6607  1549 

Institute  for  Feeble  Minded 147  6817  1496 

Ohio    State    Sanatorium 34  6988  1866 

Boys'   Industrial    School 76  6251  1743 

New   Prison   Farm 184  7950  1661 

Ohio    State    Reformatory ..  ....                    

Reformatory  for  Women . .  ....                    

During  the  year  June  30,  191 7  to  June  30,  1918  the  state  institu- 
tions consumed  8,154,365  lbs.  of  milk  of  which  6,101,923  lbs.  were 
produced  on  the  state  farms.  They  consumed  528,292  lbs  of  butter  of 
which  181,549  lbs.  were  produced  on  the  state  farms. 

In  addition  to  the  above,  the  state  institutions  produce  about  20% 
of  the  meat^  30%  of  the  lard  and  20^{  of  the  eggs  consumed.  In  the 
crop  season  of  1918  they  produced  4500  bushels  of  apples,  293  bushels  of 
cherries  and  89  bushels  of  plums,  12  bushels  of  peaches,  1,865  quarts  of 
currants,  2,229  quarts  of  gooseberries,  21,410  quarts  of  raspberries, 
2,546  qtiarts  of  blackberries  and  39,812  quarts  of  strawberries.  (The 
fruit  and  berry  production  at  Mansfield  is  not  included  in  the  foregoing 
statement  as  the  information  was  not  available  at  time  of  making  this 
report.)  The  total  value  of  fruit  produced  on  all  the  farms  for  the  year 
ending  June  30,  1919  was  $18,762  while  that  of  the  vegetables  was 
$285,208. 

A  study  of  the  state  farms  would  seem  to  show  that  for  the  past 
few  years  there  has  been  a  steady  growth  in  the  amount  and  value  of 
the  agricultural  production.  It  is  believed  however  that  the  following 
recommendations  if  put  into  effect  and  carried  out  would  lend  to  further 
economies  and  greater  net  returns.  These  recommendations  are  based 
upon  the  records  of  farm  production,  upon  visits  to  the  state  farms,  and 
upon  consultation  with  practical  dairymen,  gardeners,  and  those  versed 
in  soil  fertility  practice. 


98  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

RECOMMENDATIONS 

1  —  That  the  appropriation  for  the  operation  of  the  state  farms 

be  made  in  the  form  of  a  rotary  fund. 

At  the  present  time  such  a  fund  is  provided  for  the  operation  of  the 
manufacturing  establishments  under  the  control  of  the  board  of  admin- 
istration. (Sec.  1866  G.  C.)  The  farm  output  is  equivalent  to  that 
from  the  factories.  The  present  method  of  making  the  appropriation  is 
not  conducive  to  efficient  operation.  When  for  instance  a  cattle  sale  is 
held  to  dispose  of  the  surplus  dairy  bulls,  it  is  necessary  for  the  board  of 
administration  to  pay  all  the  expenses  incurred  by  the  sale  out  of  their 
appropriation.  Extra  expenses  incurred  by  the  board  for  the  sale  might 
be  returned  many  fold  in  the  higher  sales  price  received,  yet  the  expense 
thus  incurred  would  be  taken  from  the  appropriation  for  the  year  while 
the  receipts  are  not  credited  to  them.  The  present  method  frequently 
results  in  seeming  economies  which  are  in  reality  very  costly.  A  revolving 
fund  would  also  do  much  to  relieve  the  present  handicap  due  to  a  fixed 
appropriation  v/ith  fluctuating  costs  and  prices. 

2  —  That  a  higher  grade  of  herdsmen  be  employed. 

The  milk  production  per  cow  is  much  less  than  it  should  be.  Each 
of  the  larger  herds  is  under  the  care  of  a  hired  herdsman.  On  August 
I,  1919  there  were  444  head  of  pure  bred  Holstein  cattle  in  the  state 
owned  herds.  Many  of  these  are  of  as  good  quality  and  breeding  as  any 
cattle  in  the  state  yet  the  milk  production  per  cow  for  the  various  herds 
is  below  what  it  should  be.  If  cattle  of  this  quality  are  to  be  developed 
to  their  full  capacity  and  greatest  profitableness  they  must  be  under  the 
care  of  a  high  grade  herdsman.  The  employment  of  low  grade  herdsmen 
has  resulted  in  some  of  the  cows  going  unbred,  with  consequent  de- 
creased production.  A  calf  from  Johanna  Concordia  at  Athens  sold 
for  $1500  in  October  1918.  After  increasing  her  record  to  37.9  pounds 
an;  ofTer  of  $3000  has  been  refused  for  her  next  calf.  If  better  herds- 
men were  employed  the  average  annual  milk  production  for  several  of  the 
larger  herds  could  be  increased  1200  lbs.  per  head  with  little  increased 
feed  cost.  With  better  production  records  on  the  part  of  their  dam  more 
of  the  young  stock  would  bring  high  prices  when  sold. 

The  wages  paid  the  herdsmen  on  the  state  farms  range  from  $70  to 
$100  per  month.  If  this  wage  were  doubled  and  more  competent  herds- 
men employed  the  net  profits  from  the  herds  would  be  greatly  increased. 

3  —  That  feed  grinding  equipment  be  installed. 

Cheaper  milk  production  could  be  secured  if  part  of  the  clover  and 
alfalfa  hay  fed  to  the  dain.^  cattle  were  ground.  With  the  present  high 
price  of  feed  a  considerable  saving  could  be  made  by  grinding  these  feeds. 
This  is  not  now  done. 


ON    ADMINISTRATIVE   REORGANIZATION  99 

4  —  That  the  concentrated  dairy  feeds  be  mixed  at  a  central 

mixing  plant. 

Better  results  would  be  secured  if  the  concentrated  dairy  feeds  were 
mixed  at  a  central  point  such  as  at  London  and  then  shipped  to  the  several 
farms. 

5  —  That  more  potatoes  be  raised. 

The  state  farms  raise  about  one-half  of  the  potatoes  consumed  by 
the  institutions.  In  the  year  1918-19,  $87,899  was  paid  out  for  the  pur- 
chase of  potatoes.  In  the  year  1917-1918,  34,206  bushels  were  raised  on 
the  farms  while  41,793  bushels  were  purchased.  Potatoes  are  a  staple, 
they  are  a  crop  requiring  much  labor  per  acre  and  can  be  largely  cared 
for  by  unskilled  labor  such  as  the  patients  provide.  It  would  seem  de- 
sirable that  further  effort  be  made  to  bring  the  production  of  potatoes 
up  to  the  needs  of  the  institutions.  If  this  were  done  a  large  saving 
would  be  made. 

6  —  That  more  fruit  and  berries  be  produced. 

The  farms  are  now  producing  comparatively  little  fruit  and  few 
berries  as  noted  in  the  figures  herein  given.  A  few  new  orchards  are 
coming  on.  These  are  intensive  crops  requiring  much  labor  per  acre. 
These  crops  can  be  grown  and  the  labor  is  available.  Their  production 
should  be  increased  commensurate  with  the  consumption  demands  of 
the  institution. 

During  the  year  of  1918-19  the  value  of  vegetables  produced  was 
$285,208,  while  only  $12,134  was  paid  out  by  the  state  institutions  for 
canned  vegetables  and  $8,295  for  fresh  vegetables.  These  purchases  were 
largely  at  those  institutions  having  no  land.  This  i-s  a  very  creditable 
showing.  It  would  seem  however  that  the  vegetable  acreage  and  the 
canning  facilities  at  the  London  farm  might  well  be  increased  to  the 
point  where  they  will  produce  all  the  canned  vegetables  required  by  the 
institutions  having  no  land. 

7  —  That  the  dairy  herd  feed  records  be  put  on  a  uniform  basis. 

At  the  present  time  there  is  a  lack  of  uniformity  among  the  herds- 
men as  to  the  method  of  reporting  feed  costs  for  the  dairy  herds.  This 
should  be  put  on  a  uniform  basis  if  the  records  are  to  be  of  value. 

8  —  That  financial  statements  should  be  definite. 

The  agricultural  report  for  the  year  ending  June  30,  1919  gives 
$1,016,706.64  as  total  receipts  from  all  farms,  and  a  total  expenditure 
of  $557,703.68.  With  the  receipts  are  included  $167,910,  the  value  of  the 
forage  produced  on  the  farm.  Much  the  larger  part  of  this  forage  is 
consumed  by  the  livestock  on  the  farm  and  not  sold.  The  livestock  pro- 
duced upon  this  forage  is  also  counted  as  a  receipt.     It  is  true  that  the 


lOO  REI'ORT   OF   JOINT   LEGISLATIVE   COMMITTEE, 

value  of  forage  thus  produced  and  consumed  is  figured  as  an  expense  so 
that  the  balance  between  receipts  and  expenditures  is  correct.  This 
method  of  compilation  however  is  misleading,  it  gives  one  an  exaggeraterl 
opinion  of  the  volume  of  business  transacted. 

9  —  That  rented  farm  land  be  purchased. 

Several  of  the  state  farms  are  renting  additional  farm  land.  At 
Massillon  524  acres  are  rented,  at  Mansfield  607  acres.  Much  of  this 
land  has  been  rented  for  several  years.  The  farming  of  rented  land  is 
neither  to  the  best  interests  of  the  state  or  the  land.  If  such  of  the  rented 
land  as  is  deemed  advisable  to  retain  were  purchased  the  farming  opera- 
tions thereon  could  be  greatly  improved.  Much  of  the  rented  land  needs 
drainage,  lime  and  fertilizer. 

10  —  That  in  selecting  institutional  farms  a  requirement  be  that 
they  have  sufficient  g^ood  gardening  land  to  supply  the  needs 
of  the  institution. 

The  desirability  of  this  is  apparent.  Not  all  of  the  present  farms 
have  good  gardening  land.  The  women's  reformatory  at  Marysville 
might  be  mentioned  in  this  connection. 


OHIO  AGRICULTURAL  EXPERIMENT 
STATION 


By  DON  C.  SOWERS, 


SOURCE    OF    INFORMATION 

The  experiment  station  at  Wooster  was  visited;  conferences  were 
had  and  correspondence  exchanged  between  the  director  of  the  station 
and  members  of  the  board  of  control;  special  reports  were  submitted 
by  the  director  to  the  committee ;  published  reports  of  the  station  were 
studied  and  conferences  were  had  with  individuals  and  officials  who  have 
personal  knowledge  of  the  work  of  the  station. 

PURPOSE  OF  THE  STATION 

The  experiment  station  is  established  for  the  prosecution  of  prac- 
tical and  scientific  research  in  agriculture  and  forestry  and  for  the  devel- 
opment of  agricultural  resources.  It  seeks  to  bring  to  the  aid  of  the 
fanner  the  light  which  modern  science  throws  upon  his  work  and  to 
extend  this  knowledge  by  continuous  scientific  research  and  experimenta- 
tion. 

The  organization  of  experiment  stations  in  general,  under  the  United 
States  experiment  station  law,  known  as  the  Hatch  Act,  passed  in  1887, 
came  quite  largely  as  a  response  to  the  needs  of  the  colleges  for  experi- 
ment and  investigation  in  agriculture  as  a  means  of  developing  and 
strengthening  their  teaching.  Scientific  research  in  agriculture  is  a  com- 
paratively new  profession.  It  is  based  upon  and  made  possible  by  the 
development  of  the  sciences  of  chemistry  and  bacteriology.  Leibig's 
epoch-making  work  "Organic  Chemistry  in  its  Relation  to  Agriculture", 
published  in  1840  is  said  to  be  the  foundation  of  this  work. 

HISTORICAL 

The  first  American  experiment  station  was  established  in  Connecticut 
in  1875.  The  Ohio  experiment  station  was  established  in  1882  and  is 
therefore  one  of  the  oldest  stations  in  the  country.  It  was  organized 
under  an  independent  board  of  control.  The  station  was  located  at  the 
State  university  where  it  remained  until  1892  when  it  was  removed  to 
Wooster,  Wayne  county,  its  present  location  under  a  law  authorizing 
the  dififerent  counties  of  the  state  to  offer  a  bonus  for  its  location.  Wayne 
county  offered  the  largest  bonus,  namely  $85,000.     This  law  was  after- 


102  •REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

Ward  declared  nncorio'citutional  and  the  state  redeemed  the  bonds  which 
had  been  issued  by  the  county.  The  reasons  for  this  removal  were,  first, 
that  the  fertile  bottom  lands  near  the  university  were  not  adapted  to 
experimentation  relative  to  the  upbuilding  of  worn-out  soils;  second, 
because  the  university  would  soon  need  this  land  for  its  own  use,  and, 
third,  the  growth  of  the  city  of  Columbus  with  its  need  for  sewers, 
water  mains  and  conduits  would  not  permit  the  land  to  remain  undis- 
turbed. 

The  station  was  placed  under  the  government  of  the  agricultural 
commission  in  191 3  where  it  remained  for  two  years  when  it  was  again 
placed  under  an  independent  board  of  control. 

PRESENT   ORGANIZATION   AND   WORK 

The  present  board  of  control  consists  of  five  members  appointed  by 
the  governor  for  overlapping  terms  of  five  years.  They  receive  no 
compensation  except  actual  necessary  traveling  expenses. 

The  total  appropriation  made  by  the  general  assembly  for  the  work 
of  the  station  during  the  year  ending  June  30,  1920,  was  $232,785.  In 
addition  to  this  the  United  States  G9vernment  contributes  $30,000  yearly 
to  the  station. 

The  scientific  staff  of  the  station  includes  a  director,  director  of 
soils  and  research,  8  deputy  chiefs,  8  heads  of  departments,  4  as- 
sociates, and  32  scientific  assistants;  10  or  12  foremen,,  herdsmen, 
engineers  and  others  of  similar  rank";  16  to  20  office  assistants,  stenog- 
raphers and  clerks  and  100  to  150  laborers,  the  number  varying  with  the 
season.  The  present  Director,  Charles  E.  Thorne,  has  been  in  charge 
of  the  station  continuously  since  1887. 

The  scientific  staff  are  engaged  in  the  following  activities :  Agronomy, 
animal  husbandry,  botany,  chemistry,  dairying,  entomology,  forestry, 
horticulture,  nutrition,  soils  and  farm  management. 

The  station  has  its  own  printing  plant  and  publishes  the  following 
material :  A  press  bulletin,  which  is  sent  weekly  to  the  700  newspapers 
of  the  state ;  current  bulletins,  which  are  mailed  regularly  to  about  70,000 
farmers;  and  technical  bulletins  issued  in  smaller  editions. 

During  the  month  of  June  farmers  visit  the  station  from  the  sev- 
eral counties.  Between  June  12th  and  30th  last  year  the  director  reports 
that  "Parties  were  on  the  station  grounds  from  Knox,  Sandusky,  Colum- 
biana, Richland,  Medina,  Van  Wert,  Wood,  Lorain,  Muskingum,  Sum- 
mit and  Delaware  counties,  while  at  the  annual  Wheat  Field  Meeeting, 
held  June  27th,  which  was  a  rainy  day,  there  were  about  1500  people 
on  the  grounds,  coming  from  a  radius  of  60  miles  or  more.  One  or 
two  county  delegations  came  800  to  a  thousand  strong.  Altogether  we 
estimated  the  number  of  visitors  during  the  month  at  five  thousand  to 


ON   ADMINISTRATIVE  REORGANIZATION  IO3 

six  thousand  persons."  Similar  meetings  are  also  held  on  most  of  the 
county  and  district  experiment  farms. 

Some  co-operation  exists  between  the  experiment  station  and  the 
college  of  agriculture.  Members  of  the  faculty  assist  in  the  compilation 
of  certain  publications  which  are  regularly  used  in  the  college  classes 
and  members  of  the  station  deliver  lectures  at  the  college. 

The  work  of  the  experiment  station  is  not  confined  to  the  fields  at 
Wooster  but  is  scattered  over  the  state  in  17  different  experiment  farms 
and  forests,  each  of  which  carries  some  particular  lesson.  Difference  in 
soil  and  climate  in  various  sections  of  the  state  make  it  necessary  to  con- 
duct experiments  under  different  conditions.  Four  district  stations,  or 
test  farms  are  operated  as  integral  parts  of  the  main  station  and  i/OO 
acres  of  forest  land  are  used  for  the  study  and  development  of  state 
forests.  The  following  table  gives  the  location,  acreage,  value  and  pri- 
mary purpose  for  the  establishment  of  each  farm : 

Value 

Acres  Dec.  1918 

Experiment    Station,  Chosen    after   a    soil   survey   as   being 

Wooster,    Wayne   Co.      474  $439,000       best     suited      for     studies     in     soil 

fertility. 

Northeastern    Test  Study  of  heavy  clay  soil,    which  dif- 

Farm,       Strongsville,  fers    materially     from    the    soil    at 

Cuyahoga   County   ...       125  '     17,500      Wooster. 

Southeastern    Test  Study    of    agricultural    conditions    in 

Farm,    Carpenter,  hilly     counties.       Sheep     husbandry 

Meigs    County    300  26,700       studies  are  centered  here 

Southwestern  Test  Study    tobacco     industry    and    cereal 

Farm,        Dayton,  products   on  the   soils   derived   from 

Montgomery    County           53  18,700       glacial  limestone   drift. 
Northwestern  Test 

Farm,   Findlay   20  leased   Soil  fertility  in  this  section  of  state. 

Athens  County  221  2,800  Study  of  forests. 

Lawrence   County    1,500  7,800   Study  of  forests. 

2,673   $507,500 

A  tract  near  Elyria  containing  42,000  acres  is  leased  at  an  annual 
rental  of  $590  and  operated  in  co-operation  with  the  United  States  De- 
partment of  Agriculture  as  a  timothy  experiment  farm.  In  addition  to  the 
above  there  are  ten  county  experiment  farms  owned  by  the  several 
counties  but  operated  and  managed  under  the  supervision  of  the  ex- 
periment station 

EXPERIMENT  STATIONS   IN    OTHER  STATES 

A  Study  of  the  organization  of  experiment  stations  in  other  states 
reveals  the  fact  that  in  all  but  four  states,  namely,  Connecticut,  New 


I04  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

York,  Ohio  and  Georgia,  the  experiment  stations  are  established  and  con- 
ducted as  departments  of  the  agricultural  colleges.  In  New  Jersey  the 
station  is  located  at  the  agricultural  college  but  is  governed  by  a  special 
board  of  control. 

A  table  showing  the  state  appropriations  to  experiment  stations  shows 
tliat  Ohio  is  liberal  in  her  support  as  compared  with  other  states: 

Expenditure  for  Agricultural  Experiment  Stations  for  Year  1917* 

State  Total  Amt.  No.  on  Number  on 

Ap-propriation  Available  Staff  Mailing  List 

Ohio    $269,313  $383,882             73  65,000 

Illinois    196,500  296,525             99  41,000 

New  York  136,098  147,493             38  49,000 

Texas    135,000  194,809             45  45,000 

Minnesota    128,376  238,319             95  7,600 

California    120,281  238,578  125  35,790 

Iowa    105,880  185,280             55  36,920 

New  Jersey 98,400  167,605             36  10,000 

Wisconsin   97,500  136,908      '     106  32,011 

Indiana   91,000  408,596             62  43,000 


Five  states  made  appropriations  ranging  from  fifty  thousand  to  one 
hundred  thousand ;  eleven  states  appropriated  sums  ranging  from  twenty- 
five  thousand  to  fifty  thousand;  eleven  sfates  made  appropriations  rang- 
ing from  ten  thousand  to  twenty-five  thousand ;  eight  states  made  appro- 
priations of  less  than  ten  thousand  and  five  of  these  latter  made  no  ap- 
propriation. 

It  appears  from  the  above  figures  that  the  Ohio  station  has  not  been 
handicapped  by  a  cramped  financial  position,  a  situation  which  is  common 
in  other  states  and  which  exists  in  the  case  of  many  other  state  activities. 

The  suggestion  has  frequently  been  made  that  the  experiment  station 
should  be  made  a  part  of  the  agricultural  college.  It  is  claimed  that  the 
students  of  the  college  of  agriculture  are  being  deprived  of  a  great 
opportunity  in  not  having  access  to  the  fields  and  laboratories  of  the  sta- 
tion and  that  there  is  considerable  duplication  of  buildings,  laboratories 
and  other  facilities  under  the  present  organization. 

The  logic  and  material  advantage  of  a  union  of  the  station  with  the 
college  is  now  quite  generally  conceded  as  shown  by  the  fact  that  in  all 
but  four  states  the  station  is  a  part  of  the  agricultural  college.  The  ad- 
vantages of  such  a  union  may  be  briefly  summarized  as  follows :  A  well- 
rounded  system  of  agricultural  services  requires  research,  teaching  and 
extension  work.  Research  and  experimentation  are  necessary  to  furnish 
the  facts  that  are  disseminated  through  teaching  and  extension  activities. 


*  Report  of  the  U.  .S.  Department  of  .Agriculture  on  Work  and  Expenditures 
of  Agricultural  Experiment  Stations,   1917 


ON   ADMINISTRATIVE   REORGANIZATION  IO5 

The  teaching  and  extension  departments  are  important  means  of  giving 
pubHcity  and  effectiveness  to  the  facts  and  suggestions  resulting  from 
the  activities  of  the  experiment  station.  There  are  advantages  also  from 
the  association  of  the  working  force  of  the  station  with  the  agricultural 
college  faculty,  in  that  opportunities  are  presented  to  professors  and  in- 
structors to  engage  in  research.  Many  men  hesitate  to  join  a  college 
where  such  opportunities  for  research  in  agriculture  are  not  possible. « 
The  facilities  afforded  by  libraries,  laboratories  and  other  equipment 
would  become  available  to  the  station,  without  expensive  duplication. 
Students  would  be  afforded  opportunity  to  study  experiments  under  way 
and  to  test  out  their  ability  and  inclination  to  undertake  research  work. 

The  disadvantages  of  such  a  union  are  as  follows : 

First,  there  is  a  danger  that  the  station  w^ould  not  secure  as  liberal 
financial  support  if  it  were  a  pari  of  the  university.  This  involves  the 
danger  that  teaching  and  extension  work  will  over-shadow  the  experi- 
mental work  in  the  public  mind  and  that  the  station,  by  losing  its  iden- 
tity in  the  larger  organization  will  be  deprived  of  some  measure  of  its 
contact  and  prestige  with  its  constituents. 

Second,  there  is  the  danger  that  the  research  men  on  the  staff'  of  the 
station  may  be  assigned  to  duties  in  other  departments  —  teaching  and 
extension  work,  and  thereby  the  research  w^ork  would  suffer. 

While  these  objections  may  arise  they  do  not  necessarily  inhere 
in  the  union  of  the  station  with  the  agricultural  college.  The  advantages 
which  will  accrue  both  to  the  station  and  the  agricultural  college  seem  to 
outweigh  the  disadvantages  and  accordingly  it  is  recommended  that  such 
union  be  made. 

RECOMMENDATIONS 

It  is  recommended : 

1  —  That  the  agiricultursJ  experiment  station  be  transferred  to 

the  control  of  the  board  of  trustees  of  Ohio  State  university 
and  that  the  board  of  control  of  the  aigrricultural  experiment 
station  be  abolished. 

It  is  recognized  that  it  is  absolutely  impossible  to  move 
the  experimental  fields  of  the  station  at  Wooster.  The  experi- 
ments which  have  been  conducted  there  for  over  a  quarter  of  a 
century  should  be  continued  unmolested,  but  much  of  the  lab- 
oratory work  and  animal  husbandry  work  can  be  done  at  Co- 
lumbus as  well  as  Wooster.  A  union  of  the  two  activities  would 
eliminate  the  necessity  of  having  duplicate  buildings  and  lab- 
oratories and  at  the  same  time  increase  the  educational  value 
of  the  research  work  to  the  students. 

2  —  That   the   scientific   investigators   at   the   experiment   sta- 

tion be  placed  in  the  same  category  with  respect  to  civil 


I06  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

service  as  that  occupied  by  the  instructors  and  teachers 
connected  with  the  university. 

Every  arg-ument  that  applies  to  the  teacher  appHes  with 
even  greater  force  to  the  scientific  investigator.  Furthermore, 
it  is  not  desirable,  even  if  it  were  possible,  to  limit  the  members 
of  a  station's  staff  to  Ohio  trained  men.  In  such  scientific 
research  the  station  needs  the  broader  vision  which  comes  only 
from  experiments  under  other  conditions  of  soils  and  chmate. 
The  station  has  never  been  able  to  keep  its  staff  filled  with 
Ohio  trained  men  and  on  the  staff'  now  are  men  from  six  other 
states  and  three  foreign  countries. 
3  —  That  the  director  of  the  station  be  requested  to  make  a 
specisd  study  amd  report  on  the  subject  of  state  forests  and 
reforestation,  covering  what  is  being  done  in  other  states 
and  foreign  countries  and  including  the  formulation  of  a 
compr^ensive  state  policy  with  respect  to  forests.  If 
necessary,  a  special  appropriation  should  be  made  for  this 
work. 


ADJUTANT  GENERAL  AND  COMMISSIONER 
OF  SOLDIERS'  CLAIMS 

By  GAYLORD  C.  CUMMIN 


ADJUTANT  GENERAL'S  DEPARTMENT. 
The  organization,  powers  and  duties  of  this  office  are  prescribed  in 
the  General  Code  in  part  as  follows : 

1.  The  adjutant  general  and  the  assistant  adjutant  general  are 
appointed  by  the  governor  to  serve  at  his  pleasure.     (G.  C.  79). 

2.  "The  adjutant  general  shall  be  in  control  of  the  military  depart- 
ment of  the  state  and  perform  such  duties  as  pertain  to  the 
adjutant  general  and  quartermaster  general  under  the  regula- 
tions and  customs  of  the  United  States  Army."  *  *  *  (G. 
C.  82). 

3.  The  adjutant  general  shall  be  the  superintendent  of  the  state 
house  buildings  and  grounds,  and  shall  provide  office  space  and 
quarters  for  the  various  state  departments  in  either  state  owned 
or  leased  buildings  and  shall  make  and  sign  leases.     (G.  C.  146). 

4.  "The  adjutant  general  shall  be  the  director  of  state  armories." 
This  provision  repeals  the  law  creating  the  state  armory  board. 

Interviews  were  had  with  the  present  adjutant  general  and  former 
incumbents,  employees,  officers  of  the  Ohio  National  Guard  and  citizens. 
The  National  Guard  was  extinct  entirely  during  the  late  war  and  is  now 
being  reorganized.  It  would  be  of  little  use  to  make  a  careful  study 
of  the  organization  inside  this  department  as  far  as.  it  concerns  the 
National  Guard  during  this  reorganization  period,  and  besides  a  large 
part  of  the  duties  performed  in  this  connection  are  due  to  federal 
statutes  and  requirements  over  which  this  state  has  no  control.  Whether 
it  is  wise  or  not  to  proceed  with  the  reorganization  of  the  National 
Guard  and  Naval  Militia  is  entirely  outside  the  scope  of  this  investiga- 
tion. The  duties  of  the  adjutant  general  as  superintendent  of  buildings 
will  be  discussed  in  a  separate  report  on  that  subject. 

RECOMMENDATIONS. 

I .  That  a  department  of  military  affairs  be  created  with  the  ad- 
jutant general  as  the  administrative  head  appointed  as  at 
present,  to  have  complete  charge  of  all  the  military  affairs 

107 


I08  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

of  the  state  including  the  commissioner  of  soldiers'  claims, 
and  that  all  non-military  functions  be  placed  elsewhere. 

As  a  matter  of  principle  it  is  believed  better  to  charge  the 
adjutant  general  with  only  military  duties.  Should  an 
emergency  call  the  National  Guard  into  service  it  might 
be  impossible  for  the  adjutant  general  to  give  attention 
to  non-military  administration  for  quite  a  protracted  period. 
His  function  as  superintendent  of  buildings  is  therefore 
removed  and  attached  to  the  proposed  department  of  public 
works  and  conservation  as  more  fully  discussed  in  the 
separate  report  on  the  superintendent  of  grounds  and  build- 
ings. The  office  of  the  commissioner  of  soldiers'  claims  is 
consolidated  with  the  department  of  military  affairs  for 
reasons  discussed  in  the  report  on  that  office. 


COMMISSIONER    OF    SOLDIERS     CLAIMS. 

Powers  and  Duties. 

Section  8i  i  of  the  General  Code  provides  for  the  appointment  of 
the  commissioner  of  soldiers'  claims  by  the  governor  with  the  advice 
and  consent  of  the  senate  for  a  term  of  two  years. 

Section  814  of  the  General  Code  provides  that  "On  demand,  the 
state  commissioner  of  soldiers'  claims  shall  furnish  the  necessary  instruc- 
tions and  advice  to  soldiers,  sailors  and  marines  of  Ohio  ,  their  heirs  or 
legal  representatives,  respecting  their  claims  against  the  United  States 
for  pensions,  bounty,  back  pay  or  otherwise  by  reason  of  military  or 
naval  service,  assist  in  the  collection  of  such  claims  and  perform  such 
other  duties  as  the  governor  requires." 

Section  815  of  the  General  Code  provides  that  "The  commissioner 
of  soldiers'  claims  shall  furnish  blanks,  prepare  applications  and  give 
instruction  to  soldiers,  sailors  and  marines  or  their  heirs,  for  the  purpose 
of  admission  to  state  and  national  military  homes  *  *  *  the  Madison 
home  for  soldiers,  their  wives,  widows  and  mothers  and  army  nurses 
and  the  Xenia  soldiers'  and  sailors'  orphans'  home.  On  request  he  shall 
furnish  the  soldiers  relief  commission  of  any  county  of  the  state  copies 
of  the  state  laws  relating  to  soldiers'  relief  and  burial  funds." 

Section  816  of  the  General  Code  provides  that  "For  the  purpose  of 
assisting  soldiers  in  hospitals  or  others  totally  disabled,  in  prosecuting 
claims,  the  commissioner  of  soldiers'  claims  shall  visit  officially  the 
soldiers'  home  at  Sandusky  and  the  national  military  home  at  Dayton 
at  least  every  three  months." 

The  commissioner  of  soldiers'  claims  and  other  persons  familiar  with 
the  work  of  the  office  were  interviewed  and  consulted. 


ON    ADMINISTRATIVE   REORGANIZATION  IO9 

This  office  performs  an  important  service  for  those  whom  it  is 
expected  to  aid,  and  will  undoubtedly  be  called  upon  for  a  still  greater 
measure  of  service  due  to  claims  arising  from  the  late  war. 

Recommendations. 

1.  That  the  office  of  commissioner  of  soldiers'  claims  be  placed 

under  the  proposed  department  of  military  affairs,  and  the 
commissioner  appointed  by  the  adjutant  general  for  an  in- 
deterimnate  term  without  the  advice  and  consent  of  the 
senate. 

This  function  naturally  belongs  in  a  department  of  military 
affairs,  and  such  a  connection  will  give  a  department  head 
who  will  be  interested  in  seeing  that  this  function  is  not 
starved.  The  functions  as  contemplated  by  the  law  will 
not  be  in  any  way  impaired  by  the  consolidation,  and  other 
benefits  may  be  derived  as  suggested  in  further  recommen- 
dations herewith. 

2.  That  the  office  of  conmiissioner  of  soldiers'  claims  and  war 

record  clerk  be  combined  in  one  person. 
This  consolidation  is  entirely  feasible  without  the  service  suffer- 
ing in  any  way  and  will  save  one  officer. 

3.  That  the  holder  of  the  office  of  conmiissioner  of  soldiers' 

claims  be  commissioned  as  a  notary  and  no  separate  notary 

employed. 

At  present  a  notary  is  employed  at  $35.00  per  month  who  prac- 
tically gives  his  full  time.  This  is  an  entirely  useless  office 
and  should  be  abolished. 

4.  That  necessary  appropriations  be  made  so  that  the  provisions 

of  Sec.  816  of  the  General  Code  may  be  complied  with. 

The  section  of  the  general  code  referred  to  is  that  which  re- 
quires the  commissioner  of  soldiers'  claims  to  visit  institu- 
tions at  least  every  three  months  for  the  purpose  of  per- 
.  sonal  interviews  with  those  needing  his  services.  This  is  a 
useful  provision  of  the  statutes  and  should  be  of  great 
service  to  those  served.  As  no  appropriation  has  been  made 
this  duty  is  not  being  performed  and  the  wards  of  the  state 
are  not  getting  the  service  contemplated, 


AUDITOR  OF  STATE 

Prepared  Under  the  Direction  of 

DR.  L.  D.  UPSON, 

By  C.  E.  RIGHTOR  and  HENRY  STEFFENS,  Jr. 


AUDITOR  QF  STATE. 

The  survey  of  the  work  of  this  officer  was  made  by  conferences 
with  the  auditor  of  state  and  those  in  charge  of  the  chief  functions  of 
the  office  and  by  a  general  observation  of  the  operations  of  these  activ- 
ities. Copies  of  accounting  and  reporting  forms,  letters  and  bulletins  of 
instruction,  and  copies  of  the  annual  reports  of  the  office  from  1913 
through  191 8  and  other  publications  were  obtained  and  studied.  Com- 
munications received  by  the  committee  relating  to  the  work  of  this  of- 
fice were  examined  in  connection  with  the  survey. 

The  spirit  of  cooperation  with  the  field  agents  was  evident  in  every 
officer  and  employe  who  was  interviewed,  and  all  questions  and  requests 
for  information  were  given  careful  attention. 

The  Ohio  constitution  provides  that  the  auditor  of  state  shall  be 
one  of  the  six  public  officials  of  the  executive  department  elected  by  the 
people  (Art.  Ill,  Sec.  1),  and  that  his  term  of  office  shall  be  four  years 
(Sec.  2).  It  is  further  prescribed  by  constitution  that  should  the  office 
of  auditor  become  vacant  through  death,  impeachment,  resignation,  re- 
moval or  disability,  the  governor  shall  fill  the  vacancy  until  the 
disability  is  removed,  or  a  successor  elected  and  qualified  (Sec.  18)  ;  and 
that  he  shall  receive  for  his  services  a  compensation  to  be  established  by 
law  (Sec.  19).  Section  20  of  Article  III  requires  that  the  auditor  shall, 
at  least  five  days  preceding  each  regular  session  of  the  general  assembly, 
report  to  the  governor,  who  ?hall  transmit  such  report,  with  his  message, 
to  the  general  assembly.  In  Article  VIII,  Section  8,  the  auditor  of  state 
is  named  as  one  of  "The  Commissioners  of  the  Sinking  Fund"  of  the 
state,  and  the  duties  of  the  commission  are  prescribed.  Article  XI,  Sec- 
tion II,  names  the  auditor  as  one  of  three  officers  who  shall,  at  each 
decennial  period,  ascertain  and  determine  the  ratio  of  representation  and 
number  of  representatives  and  senators  each  county  or  district  shall  be 
entitled  to  elect.  The  foregoing  are  the  only  references  in  the  constitu- 
tion to  the  auditor  of  state.  Thus,  while  the  position  of  auditor  is  a 
constitutional  one,  there  is  no  constitutional  provision  for  the  duties 
inherent  to  it.     In  the  absence  of  such  provision,  it  may  be  assumed  that 

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112  REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 

determination  of  powers  and  duties  of  the  office  is  delegated  to  the 
general  assembly.  B}'  statute,  the  auditor  is  designated  the  "chief 
accounting  officer  of  the  state."  As  such,  he  has  been  charged  by  vancA.;i 
statutes  with  extensive  powers  and  duties,  of  both  an  auditing  and  con- 
trolling and  an  administrative  nature. 

To  perform  the  diversified  duties  of  the  chief  fiscal  officer  of  the 
state,  the  auditor's  office  is  organized  in  two  main  divisions,  —  the 
auditor's  office,  and  the  bureau  of  inspection  and  supervision  of  public 
offices.  There  was  no  chart  furnished  by  the  auditor  showing  the  or- 
ganization of  his  office,  and  the  accompanying  chart  is  designed  to  show 
the  existing  organization. 

The  auditor's  office  is  under  the  direct  supervision  of  the  deputy 
auditor,  and  comprises  the  following  chief  functions,  which  are  discussed 
separately : 

Accounting  department 

Control  over  income 

Audit  of  state  departments 

System  examiner 

Supervision  of  school  and  ministerial  lands 

Custody  of  land  records 

Bonds  of  transportation  agents 

Supervision  of  highway  accounting 

Statistician. 

The  bureau  of  inspection  and  supervision  of  public  offices  is  under 
the  supervision  of  the  auditor  as  chief  inspector,  with  two  deputy  in- 
spectors in  direct  charge  of  the  two  functions : 

Inspection  of  cities,  villages,  schools,  townships,  justices  of  peace, 

and  utilities 
Inspection  of  counties. 

In  addition  to  the  foregoing  duties,  the  auditor  is  a  member  of  a  large 
number  of  executive  boards  in  an  ex-officio  capacity,  and  is  required 
also  to  perform  numerous  administrative  activities  of  a  minor  nature. 

The  apparent  intent  of  the  people  in  creating  the  office  of  auditor 
of  state  has  not  been  observed  consistently  throughout  past  years  of  leg- 
islation, in  that  statutes  have  been  enacted  delegating  to  other  officers  of 
the  state  duties  and  powers  of  a  financial  nature,  which  belong  properly 
within  the  domain  of  the  auditor's  office,  and  on  the  other  hand  charging 
the  auditor  with  duties  other  than  of  the  nature  of  financial  control. 

ORIGIN  OF  OFFICE  OF  AUDITOR 

With  the  expansion  during  past  decades  of  the  public  services  being 
undertaken  by  state  governments,  and  the  resultant  growth  in  revenues 
and  expenditures,  and  also  with  the  general  adoption  of  biennial  sessions 


ON    ADMINISTRATIVE   REORGANIZATION  113 

of  the  legislature,  the  necessity  developed  for  a  continuous  supervision 
of  state  finances  by  a  permanent  official.  Experience  dictated  that  no 
longer  could  committees  from  the  legislative  body  perform  this  work 
adequately.  The  position  of  auditor  was  created  to  afford  the  necessary 
check  on  the  treasurer,  the  official  charged  with  receiving  the  public 
revenues  from  the  several  collecting  authorities  and  paying  the  bills  of 
the  state.  Today,  the  treasurer  may,  in  general,  make  no  disbursement 
except  upon  warrant  issued  by  the  auditor.  The  auditor  keeps  account- 
ing control  over  financial  transactions,  and  generally  has  been  empow- 
ered to  supervise  the  accounts  of  state  departments  and  institutions  and 
to  prescribe  tmifomi  systems  of  accounting.  The  auditor  has  thus  ac- 
quired, by  statutory  requirement,  the  duties  of  an  accountant,  permitting 
disbursements  of  state  funds  when  made  in  accordance  with  legal  author- 
ization, and  is  not  in  general  an  auditor  serving  as  an  instrument  of 
economy  and  efficiency. 

THE  AUDITOR  IN   OHIO 

There  is  apparent  in  Ohio  no  recognition  of  the  distinction  between 
the  function  of  auditing  receipts  and  disbursements,  revenues  and  ex- 
penditures, and  determining  the  justification  of  the  cost  of  the  several 
activities  of  the  state  government,  and  the  function  of  controlling  state 
finances  through  the  accounting  for  revenues,  expenditures,  and  values. 
As  is  indicated  in  the  preliminary  report  of  this  committee,  (December, 
1919),  it  is  believed  highly  desirable,  and  indeed  essential,  that  the  two 
distinct  functions  should  be  recognized  by  the  general  assembly,  and  pro- 
vision be  made  for  their  conduct  by  two  independent  officials.  The 
function  of  audit,  including  the  continuous  analytical  audit  of  operation 
results  of  every  office,  department,  institution  or  other  agency  of  the 
state,  should  be  lodged  with  a  single  officer,  to  be  elected  by  the  people 
(or  by  the  general  assembly),  who  would  be  independent  of  the  execu- 
tive department  and  free  to  criticize  its  performance  when  necessary. 
The  function  of  accounting,  controlling  revenues,  expenditures,  and 
property  values,  and  other  administrative  duties  of  a  financial  nature, 
should  be  placed  within  a  department  of  finance,  whose  head  should  be 
appointed  by  the  chief  executive  of  the  state. 

The  necessity  for  a  single,  independent  check  upon  the  several 
branches  of  the  government  is  being  recognized  in  the  federal  adminis- 
tration, as  pointed  out  by  President  Wilson  in  his  message  to  Congress 
on  December  2,  1919.  Upon  that  occasion  the  president  recommended 
that  ascertainment  be  had  of  the  economy  and  efficiency  with  which  the 
moneys  appropriated  by  congress  are  expended.  At  the  present  time 
the  law  provides  only  for  the  ascertainment  of  the  lawfulness  of  ex- 
penditures. No  one  is  authorized  to  ascertain  the  wisdom,  economy  or 
effectiveness  of  expenditures.  The  president  advocated,  therefore,  the 
establishment  of  a  staff  of  auditors  in  the  treasury  department,  who 
should  be  highly  trained  officials,  with  permanent  tenure  of  office,  free 


114 


REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 


of  obligations  to  or  motive  of  consideration  for  the  present  or  any  subse- 
quent administrations,  and  that  they  should  be  authorized  to  examine 
and  report  upon  the  methods  of  expenditure  and  results  obtained  by 
the  various  executive  departments.  The  reports  of  these  auditors  would 
be  made  to  congress  and  the  secretary  of  the  treasury. 

PROPOSED    ORGANIZATION 

To  furnish  the  proper  organization  of  the  state  government  called 
for  by  modern  conditions,  it  is  recommended  that  the  state  of  Ohio  revise 

PROPOSED  OEGMIZATIOir 


ELECTORATE 


AUDITOR  OF 
STATE 


AUDIT  OP   STATE 
DEPARTME1JT3 


INSPECTION  AND 
SUPERVISION  OP 
PUBLIC  OFFICES 


CHIEF  DEPUTY 
INSPECTOR 

1" 


EXAMINATION  OF 
CITIES-TOWNSHIPS 


EXAMINATION  OF 
COUNTIES 


EXAMINATION   OF 
ISCHOOL   DISTRICTS 


the  extent  of  functions  performed  by  the  auditor  of  state,  limiting  such 
duties  to  those  of  an  auditing  nature,  and  extending  his  authority  to 
include  not  alone  the  inspection  of  the  books  of  account  and  financial 
records,  but  also  to  conduct  examinations  of  the  methods  of  adminis- 
tration of  each  office,  institution,  etc.,  to  determine  upon  the  economy, 
efficiency,  and  adequacy  of  the  public  service  being  undertaken. 


ON   ADMINISTRATIVE  REORGANIZATION  1 15 

This  office  would  continue  to  be  constitutional,  but  would  be  removed 
from  the  executive  branch  of  the  government.  The  term  of  office  should 
remain  at  four  years,  and  the  duties  be  set  forth  by  statute.  Provision 
should  be  inade  by  law  for  reports  of  findings  of  the  auditor  to  be  made 
to  the  general  assembly,  the  chief  executive,  and  the  citizens  of  the 
state. 

If  considered  preferable  by  general  assembly,  that  body  could  pro- 
vide through  constitutional  amendment  for  the  election  of  this  officer  by 
its  vote.  In  "event  of  election  by  either  the  electorate  or  the  legislature 
it  is  believed  the  public  service  would  be  promoted  by  having  established 
definite  and  ample  qualifications  for  the  position  of  auditor  of  state,  and 
requiring  that  those  elected  to  the  position  should  be  capable  of  meeting 
the  prescribed  standards.  The  people,  or  the  general  assembly,  could 
demand  specific  performance  during  the  incumbency  of  the  elected 
official. 

The  duties  of  the  office  of  auditor  of  state,  as  proposed,  would 
naturally  divide  into  the  examination  of  state  departments,  institutions, 
etc.,  and  the  examination  of  minor  subdivisions  of  the  state.  It  is 
recommended  that  the  present  functions,  as  described  in  this  report, 
remain  in  the  office: 

Audit  of  state  departments 

Bureau  of  inspection  and  supervision  of  public  offices 

All  other  functions  of  the  present  office  of  auditor  would  be  trans- 
ferred to  other  departments  or  offices,  as  will  be  indicated. 

It  is  further  recommended  that  a  new  office  be  created  within  the 
executive  branch  of  the  state  government,  to  be  titled  the  director  of 
finance.  This  officer  would  be  appointed  by  the  governor  and  serve  at 
his  pleasure.  He  would  in  fact  be  the  chief  financial  officer  of  the  state, 
and  his  duties  would  be  only  those  functions  of  the  state  government 
that  are  essentially  of  a  financial  nature,  including  the  assessment,  equal- 
ization, levy,  collection,  custody,  disbursement  and  management  of  public 
revenues. 

The  creation  of  this  office  would  require  constitutional  amendment, 
and  would  include  also  the  elimination  of  the  state  treasurer  as  a  consti- 
tutional officer,  his  duties  to  be  transferred  to  the  director  of  finance. 
The  functions  of  the  present  tax  commission  would  also  be  transferred 
to  this  office,  as  would  the  duties  of  the  state  purchasing  agent,  state 
printing  board,  and  certain  of  the  activities  now  performed  by  the  secre- 
tary of  state  and  other  offices. 

Specifically,  the  following  bureaus  would  be  created  within  the  office 
of  director  of  finance: 

Bureau  of  accounting 

Bureau  of  income  and  taxation 


Il6  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

Bureau  of  motor  vehicles  —  licenses 
Bureau  of  treasury 
Bureau  of  purchasing 

PRESENT    PROCEDURE 

The  auditor  of  state  controls  the  receipts  and  disbursements  of  all 
state  activities  currently,  except  of  the  industrial  commission,  which  con- 
ducts its  own  financial  transactions,  reporting  same  daily  to  the  auditor. 
The  system  in  the  auditor's  office  was  examined  from  the  inception  of 
a*  purchase  order  through  preparation  of  the  voucher  and  warrant,  and 
of  a  payroll  through  the  warrant,  these  transactions  being  carried  into 
the  appropriation  ledgers  and  cash  disbursements  records  of  the  auditor's 
and  treasurer's  offices ;  also  the  procedure  in  recording  receipts  was 
traced,  from  the  reports  of  departments  to  the  auditor  to  the  entries  in 
his  records  and  those  of  the  treasurer. 

No  attempt  is  made  to  comment  upon  the  detailed  procedure,  except 
to  note  that  mechanical  equipment  has  been  introduced  to  a  large  extent, 
resulting  in  a  saving  of  time  and  personal  service.  Conferences  with 
those  having  charge  of  the  several  activities  disclosed  that  they  appre- 
ciate the  unsolved  problems  of  the  office.  It  is  believed  that  the  success 
of  any  procedure  depends  upon  the  individuals  responsible  for  its  opera- 
tion, and  it  is  suggested  that  provision  be  made  that  the  officials  in  charge 
be  enabled  to  remedy  recognized  defects. 

The  inauguration  of  the  office  of  director  of  finance  of  periodic 
staff  conferences  will  do  much  to  bring  about  a  better  appreciation  of 
the  benefits  to  be  derived  from  a  comprehensive  accounting  procedure, 
thereby  inspiring  the  employes  to  greater  efforts.  Such  conferences 
should  discuss  the  purpose  of  the  accounts,  and  most  effective  means  of 
obtaining  these  ends. 

The  department,  to  attain  the  proper  esprit  de  corps,  must  adapt 
the  practice  in  vogue  in  banking  institutions,  of  handling  each  day  all 
the  transactions  occurring  that  day. 

The  following  pages  treat  in  general  of  the  work  of  the  office  of 
auditor  of  state  as  at  present  organized. 

DEPARTMENT  OF  ACCOUNTING 

This  department  is  under  the  direction  of  a  chief  bookkeeper,  and 
keeps  financial  records,  for  both  cash  and  appropriation  accounts,  audits 
income  and  disbursement  documents,  and  draws  warrants.  To  perform 
this  work  the  department  employs  2  clerks  on  auditing  payrolls  and  in- 
voices;  3  clerks  on  writing  and  filing  warrants;  i  clerk  posting  the 
journal  distribution  to  appropriation  control  accounts  and  reporting  war- 
rants paid ;  i  clerk  posting  detail  appropriation  accounts ;  i  clerk  analyz- 
ing disbursements  in  detail ;  i  clerk  preparing  disbursements  records ;  i 


ON   ADMINISTRATIVE  REORGANIZATION  117 

clerk  on  sales  ledger  and  auditing  requisitions  on  the  purchasing  agent, 
and  preparing  monthly  reports  of  appropriations;  and  i  clerk  on  the 
revenue  receipts  and  disbursements  journal. 

Examination  of  the  procedure  of  this  department  discloses  that  a 
complete  financial  statement  of  the  state  is  not  now  available  from  the 
existing  records.  It  is  believed  a  general  ledger  should  be  maintained  by 
this  department,  carrying  controlling  accounts  of  the  state's  finances,  so 
that  currently  a  balance  sheet,  complete  for  all  kinds  of  assets  and 
liabilities,  a  statement  of  income  and  expenditures,  and  in  addition  a 
statement  of  appropriations,  may  be  prepared.  For  these  records, 
definite  classifications  of  accounts,  of  both  income  and  expenditures, 
should  be  established. 

INVENTORY  OF   PROPERTY 

No  ledger  control  is  had  by  this  office  over  the  state's  investment 
in  properties,  —  lands,  buildings,  equipment,  and  improvements.  It  is 
believed  that  the  total,  value  represented  in  these  properties  should  be 
reflected  on  the  general  ledger  of  the  state,  and  be  kept  currently.  It  is 
appreciated  that  inventories  now  had  by  the  auditor's  office  of  the  equip- 
ment of  the  several  stafe  offices,  departments  and  institutions,  are  effec- 
tive as  a  control  on  the  personal  property  of  the  state.  It  is  believed, 
however,  that  the  total  investment  should  be  carried  in  the  general 
records  of  the  department  of  finance,  and  not  kept  merely  as  a  memor- 
andum card  record. 

APPROPRIATION  ACCOUNTS 

The  appropriation  accounts  of  the  auditor's  office  are  incomplete  in 
that  the  books  of  acount  do  not  now  record  the  incurrence  by  offices, 
departments,  etc.,  of  contingent  liabilities  in  the  form  of  open  market 
orders  and  contracts  for  materials,  equipment,  etc.  Only  with  the  con- 
trol by  the  auditor  of  this  form  of  financial  transactions  can  this  officer 
prevent  the  incurrence  of  indebtedness  in  excess  of  the  amount  authorized 
by  the  legislature,  and  the  principle  of  appropriation  accounting  be  sat- 
isfactorily carried  on.  From  the  description  of  the  system  in  vogue  in 
1917,  it  is  apparent  that  it  was  complete  and  entirely  satisfactory.  It  is 
recommended  that  the  auditor  re-establish  this  appropriation  accounting 
procedure  in  its  entirety,  so  that  the  office  may  exercise  proper  control 
over  expenditures.  Failure  to  provide  such  control  may  result  in  the 
accumulation  of  unknown  liabilities  to  be  paid  from  subsequent  appro- 
priations, thereby  defeating  the  very  purpose  of  appropriations. 

The  monthly  report  of  balances  to  the  credit  of  appropriations,  as 
now  submitted  to  each  division  of  the  state  government,  should  be  of 
greater  value,  as  it  should  show,  for  each  appropriation: 

Total  appropriation 
Total  disbursements 
Total  encumbrances 
Unencumbered  or  free  balance 


Il8  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

The  unencumbered  or  free  balance  of  the  appropriation  is  the  one 
amount  that  the  administrative  official  can  put  to  any  use.  It  indicates 
to  him  the  extent  to  which  he  may  carry  on  any  activity.  Such  report 
will  render  unnecessary  the  maintenance  within  all  departments  of 
appropriation  accounts. 

As  a  substitution  for  the  recording  of  contingent  liabilities,  the 
auditor  instituted  the  present  practice  of  addressing  a  request  to  each 
office  prior  to  June  30  of  each  second  year  for  a  statement  of  the  total 
amount  of  contingent  liabilities  against  each  appropriation  item.  When 
this  information  is  received  by  him,  such  amount  is  continued  as  an 
appropriation,  to  meet  the  liability  upon  delivery  of  the  services  or  goods, 
and  the  balance  of  the  unexpended  appropriation  is  lapsed.  This  practice 
affords  no  control,  as  figures  may  be  reported  arbitrarily. 

The  routine  of  the  department  appeared,  from  observation  by  the 
examiners,  to  be  conducted  in  a  satisfactory  manner.  It  is  possible  that 
through  blanketing  of  vouchers  for  each  vendor,  and  the  writing  of  one 
warrant  for  each  account,  will  not  deprive  the  department  of  any  control 
or  legal  obligation,  but  might  reduce  the  clerical  work  of  the  office,  as 
well  as  prove  a  convenience  to  the  claimants  of  the  state,  especially  if 
an  abbreviated  statement  of  the  items  covered  by  each  warrant  is  fur- 
nished them  by  the  office. 

The  department  of  accounting  should  be  transferred  to  the  pro- 
posed department  of  finance. 

CONTROL  OVER  INCOME 

This  division,  under  the  direction  of  the  auditor  of  income,  main- 
tains all  records  in  connection  with  the  accrual  or  collection  of  income, 
the  source  of  entry  being  a  copy  of  the  revenue  voucher  filed  with  the 
auditor  by  the  collecting  or  accruing  office.  The  range  of  accounts  is 
extensive,  including  current  and  delinquent  accounts  of  all  kinds,  with 
state  institutions,  the  tax  commission,  and  other  departments,  trust  fund 
accounts,  inheritance  tax,  forfeited  lands,  accounts  with  counties  in 
settlement  of  taxes,  excise  taxes,  insurance,  etc.,  collections  of  which 
revenues  are  made  by  the  treasurer.  These  records  are  all  handled  by 
one  auditor  of  income,  and  are  in  very  satisfactory    condition. 

Further  and  continued  effort  should  be  made  to  perfect  the  control 
over  income,  so  that  it  will  include  all  the  revenues  and  receipts  accruing 
to  the  state. 

This  activity  should  be  transferred  to  the  proposed  department  of 
finance,  bureau  of  income  and  taxation. 

.\UDIT  OF   STATE   DEPARTMENTS 

The  audit  of  state  offices,  departments,  institutions,  etc..  is  under 
the  direction  of  a  supervising  examiner,  who  has  four  examiners  and 


ON   ADMINISTRATIVE   REORGANIZATION  II9 

three  assistants.  The  supervising  examiner  also  conducts  special  ex- 
aminations of  the  political  subdivisions  of  the  state. 

The  statutes  provide  that  there  shall  be  made  an  audit  of  financial 
transactions  of  each  public  institution  not  less  than  six  times  a  year,  and 
also  when  there  is  a  change  in  the  personnel  of  any  office,  board,  etc. 
It  is  believed  that  the  frequency  of  inspection  should  be  determined  by 
the  auditor. 

The  purpose  of  the  audit  of  state  departments  is  not  merely  to 
examine  the  financial  records  as  to  their  completeness  and  the  regularity 
of  transactions,  but  attempt  is  made  to  determine  whether  the  law  is 
being  carried  out  in  all  respects  in  the  conduct  of  the  office  or  department. 

To  promote  efficiency  of  the  examiners,  informative  bulletins  are 
prepared  and  distributed  as  occasion  requires,  and  a  model  form  of 
report  has  been  laid  down,  which  is  of  large  suggestive  value  to  the 
examiners.  These  features  add  to  the  effectiveness  of  results  which  have 
been  achieved  by  this  office  since  1902. 

A  general  examination  of  the  reports  of  the  audits  of  some  of  the 
departments  and  institutions  indicates  an  appreciation  of  the  responsi- 
bility of  the  work,  which  has  undoubtedly  achieved  many  valuable  re- 
sults. It  is  a  question  of  policy  whether  the  reports  should  go  into  a 
detailed  description  concerning  the  methods  pursued  by  any  department, 
as  this  takes  time.  Suggestions  relative  to  procedure  may  be  accom- 
plished through  consultation  with  and  memoranda  to  the  administrative 
officials.  There  is  ample  evidence  that  the  audit  and  its  suggestions  are 
welcomed  by  the  several  departments. 

A  complete  inventory  of  state  property,  including  lands,  buildings, 
structures,  and  equipment  is  operated  by  a  supervising  examiner,  and 
shows  a  total  investment  of  over  $71,000,000.  It  is  reported  that  this 
inventory  is  kept  up  to  date,  through  analysis  of  vouchers  and  revenue- 
vouchers.  When  an  officer  is  checked  out  of  office,  any  irregularity  is 
adjusted,  and  on  some  occasions  collection  of  cash  has  been  made  for 
missing  property. 

SYSTEM    EXAMINER 

The  time  of  the  system  examiner  is  devoted  to  analyzing  revenues 
and  cash  receipts  and  reporting  same  to  the  auditor,  to  auditing  the  ac- 
counts of  the  state  treasurer,  and  to  devising  accounting  procedures  for 
the  auditor's  or  other  state  offices  and  departments  as  may  be  required 
through  the  enactment  of  legislation. 

Examination  of  the  accounting  systems  in  several  of  the  depart- 
ments of  the  state  government  discloses  that  the  auditor  of  state  has 
not  invariably  prepared,  and  does  not  now  invariably  assist  in  devising, 
a  system  of  books  which  will  meet  the  requirements  of  new  Igislation. 
It  is  believed  that  the  auditor  should  give  more  attention  to  preparing 
the  accounting  records  of  all  state  offices,  departments  and  institutions, 


I20  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

with  the  view  to  making  the  entire  system  as  nearly  uniform  as  possible 
with  respect  to  the  information  to  be  recorded  and  made  available  from 
the  books. 

A  uniform  revenue-voucher  for  all  departments  has  been  devised 
and  is  now  in  use.  However,  it  has  been  found  impossible  thus  far  to 
get  the  operating  departments  to  make  full  use  of  it  in  reporting  revenue 
accruals.  Receipts  are  reported  on  the  form,  however,  and  are  classi- 
fied in  detail  by  the  system  examiner.  This  form  is  not  used  by  county 
treasurers  in  their  reports  to  the  auditor  of  state. 

Greater  authority  should  be  given  the  incumbent  of  this  office  so 
that  the  systems  and  procedures  developed  may  be  put  into  effect. 

SUPERVISION    OF    SCHOOL   AND    MINISTERIAL   LANDS. 

This  division  is  under  the  direction  of  deputy  supervisor  of  school 
lands,  under  the  provisions  of  the  Garver  Act  of  1917. 

Prior  to  1914,  the  lands  that  had  been  dedicated  to  school  and 
ministerial  purposes  were  locally  administered,  but  experience  dictated 
that  central  control  by  the  state  was  provident,  and  laws  were  passed 
placing  the  control  of  such  lands  with  the  auditor  of  state.  Adequate 
appropriation  to  enforce  the  laws  has  not  been  made,  but  a  deputy  has 
made  substantial  progress,  and  the  efforts  of  the  office  have  meant  greatly 
increased  revenues  to  the  local  subdivisions  affected. 

The  scope  of  the  law  charging  the  auditor  with  responsibility  for 
administration  of  these  lands  is  very  broad,  including  judicial  action  in 
cases  affecting  the  settlement  of  claims,  determining  of  values  for  sales 
purposes  or  rentals,  etc. 

It  is  believed  that  the  supervision  of  these  lands  is  beyond  the  proper 
scope  of  the  auditor  of  state,  and  that  the  entire  responsibility  for  them 
should  be  transferred  to  the  proposed  department  of  public  works.  The 
auditor  of  state  would  then  be  in  a  position  to  review  the  transactions 
and  pass  upon  their  legality  and  effectiveness,  thus  making  possible  the 
check  upon  them  which  is  desirable  on  all  public  transactions.  To  date 
the  work  of  locating  certain  of  the  lands  originally  dedicated  for  the 
purposes  of  school  and  religious  purposes  has  not  been  undertaken,  and 
special  examinations  necessary  because  of  changed  conditions,  presence 
of  coal,  oil  or  other  minerals,  etc.,  have  not  been  made,  because  no  ap- 
propriation was  made  by  the  general  assembly.  It  is  believed  that  a 
complete  record  should  be  compiled  of  all  such  lands,  through  the  neces- 
sary surveys,  field  studies,  examination  of  local  records,  etc.  This,  it  is 
evident,  is  more  properly  the  work  of  a  department  of  public  works  than 
of  an  auditor. 

CUSTODY  OF  LAND  RECORDS 

The  auditor  of  state  is  custodian  of  all  original  land  records,  field 
notes,  surveys,  etc.    The  statutes  prescribe  a  schedule  of  fees  for  furnish- 


ON  ADMINISTRATIVE  REORGANIZATION  121 

ing  copies  of  these  documents.     This  function  is  under  the  direction  of 
a  clerk,  who  prepares  copies  of  documents  upon  request. 

It  is  recommended  that  this  activity  be  transferred  to  the  office  of 
the  secretary  of  state,  as  the  custody  of  these  land  records  is  merely  a 
matter  of  preservation  of  records  rather  than  of  finance. 

BONDS  OF  TRANSPORTATION  AGENTS 

The  statutes  provide  that  any  person  selling  steamship  or  railroad 
tickets  to  or  from  foreign  countries,  or  receiving  money  for  transmission 
to  foreign  countries,  shall  engage  in  such  business  only  after  obtaining 
from  the  auditor  of  state  a  certificate  of  compliance.  A  bond  of  $5,000, 
to  the  state  of  Ohio,  is  required  of  each  agent,  which  is  filed  with  the 
auditor,  and  a  record  of  all  such  bonds  is  kept  by  the  auditor. 

This  activity  is  supervised  by  a  clerk  in  the  auditor's  office,  who 
issues  certificates  of  authority,  and  accepts  bends  after  their  approval 
by  the  county  auditor  of  the  county  in  which  the  agent's  office  is  situated. 
Each  certificate  and  bond  must  be  renewed  annually,  for  which  a  fee  of 
$5  is  collected  by  the  auditor.  The  bonds  are  filed  at  the  desk  of  the 
clerk. 

It  is  recommended  that  this  activity  be  transferred  to  the  proposed 
department  of  trade  and  commerce,  as  it  is  a  matter  of  regulating  a  busi- 
ness and  not  primarily  a  financial  activity  of  the  state. 

SUPERVISION    OF    HIGHWAY  ACCOUNTING 

By  the  provisions  of  an  Act  of  191 7,  the  auditor  of  state  shall  pre- 
scribe the  methods  of  accounting  for  the  highway  department  and 
direct  the  accounting  force  of  that  department.  To  carry  out  this  duty 
an  examiner  under  the  supervision  of  the  supervising  examiner  is  as- 
signed to  this  work.  The  procedure  has  been  estabHshed,  and  but  a  por- 
tion of  the  examiner's  time  is  required  to  supervise  the  work  from  day 
to  day. 

It  is  recommended  that  this  activity  be  transferred  to  the  proposed 
department  of  finance. 

STATISTICIAN 

This  officer  is  ciiarged  with  the  duty  of  preparing  and  publishing 
the  annual  report  of  the  auditor  of  state. 

The  work  of  collecting  and  compiling  data  for  this  report  consumes 
about  six  months  of  the  year,  —  from  July  to  January.  The  section  de- 
voted to  county  government  statistics  is  compiled  with  difficulty,  owing 
to  the  frequent  changes  in  county  auditors  and  their  lack  of  informa- 
tion as  to  the  procedure  of  their  office. 

The  auditor's  annual  report  since  191 3  has  been  greatly  condensed 
as  compared  with  issues  prior  to  that  date.  Twelve  hundred  copies  are 
published,  and  circulated  to  a  selected  mailing  list  of  public  officials, 


122  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

libraries  —  especially  high  school,  —  and  to  individuals,  and  the  demand 
is  greater  than  the  supply. 

From  two  to  three  months  prior  to  the  issuance  of  the  bound  report, 
it  is  the  custom  of  the  auditor  to  prepare  and  have  published  "advance 
pages"  of  material  to  be  contained  in  the  report,  relating  to  subjects  of 
popular  interest.  These  advance  pages  to  the  number  of  5,000  are 
printed,  and  distributed  to  the  members  of  the  general  assembly  and 
citizens  of  the  state. 

Payment  of  the  annual  report  and  of  advance  pages,  and  other 
literature  emanating  from  the  auditor's  office,  is  through  the  appropria- 
tion to  the  state  printer.  This  course  is  a  matter  of  budget  procedure 
and  is  common  to  all  offices  in  the  issuance  of  reports.  It  is  believed, 
however,  that  there  should  be  an  appropriation  to  the  auditor  of  state 
for  the  estimated  amount  of  his  printing  bill.  Thus  the  analysis  of  the 
cost  of  operation  of  the  office  would  be  more  nearly  in  accord  with  the 
facts.  The  same  principle  is  applicable  to  all  offices,  and  is  discussed 
in  the  report  on  State  Printing. 

During  the  remaining  months  of  the  year  the  statistician  has  time 
available  for  research,  and  information  is  compiled  relative  to  the  several 
state  departments  for  inclusion  in  the  annual  report,  and  for  bringing  this 
information  up  to  date.  As  a  result,  many  facts  of  an  informative  nature 
appear  in  the  auditor's  annual  report,  under  each  state  office  or  depart- 
ment. While  there  is  no  doubht  that  the  material  thus  compiled  and  made 
available  to  the  public  at  large  is  of  large  educational  value,  it  is  a  perti- 
nent question  to  enquire  whether  the  auditor  of  state  should  be  engaged 
in  presenting  such  information,  and  whether  the  facts  are,  or  should  be, 
available  in  other  reports,  and  therefore  duplication  of  efifort  and  ex- 
pense result. 

The  auditor,  by  virtue  of  his  duties  both  as  auditor  and  as  ex-officio 
member  of  the  state  printing  board,  has  compiled  during  the  past  several 
years  a  number  of  reports  and  bulletins,  on  diverse  subjects.  These  in- 
clude "Ohio  Interrogation  Points"  —  which  is  in  its  eighth  edition,  — 
Ohio  Live  Stock,  Cost  of  Education,  Debt  and  Taxation  (1918),  etc. 

It  is  recognized  that  the  statutes  provide  that  the  auditor  in  com- 
piling his  annual  report  for  the  year,  may  include  such  remarks  and 
suggestions  relative  to  state  finances  as  he  deems  proper  for  consideration 
by  the  general  assembly.  Yet  it  is  a  question  for  discussion  whether  the 
auditor,  as  the  chief  financial  officer  of  the  state,  is  the  proper  official 
to  prepare  and  disseminate  the  information  contained  in  these  publica- 
tions. That  the  publications  have  met  with  cordial  reception  by  the 
public,  and  have  received  the  commendations  of  public  officers  and  citi- 
zens alike  because  of  the  information  they  have  made  available,  in  some 
instances  for  the  first  time,  is  sufficient  token  that  their  issuance  is  amply 
worth  while. 


ON   ADMINISTRATIVE  REORGANIZATION  123 

Even  granting  that  the  superintendent  of  education,  the  board  of 
agriculture,  or  other  offices  or  departments  concerned  in  the  publications, 
or  which  should  be  responsible  for  their  issuance,  have  never  in  the  past 
done  their  full  duty  to  the  public,  yet  it  is  pertinent  to  raise  the  question 
as  to  the  proper  source  for  the  documents.  Except  such  information  as 
is  clearly  of  a  financial  nature,  and  therefore  of  direct  concern  to  the 
auditor  of  state,  it  is  believed  that  the  chief  executive  of  the  state  should, 
by  virtue  of  his  responsibilities  to  the  people,  be  entrusted  with  the  duty 
of  informing  the  citizens  about  their  state  government.  It  is,  therefore, 
suggested  that  the  issuance  of  publications  of  all  administrative  depart- 
ments, including  those  of  the  chief  accounting  officer,  should  be  prepared 
and  distributed  through  a  bureau  of  the  governor's  office.  This  is  dis- 
cussed in  detail  under  the  report  on  that  office. 

It  is  suggested  that  the  nature  of  information  contained  in  the 
auditor's  publicity  should  be  informative  only,  —  it  should  be  non- 
political,  unbiased  and  impartial.  In  "Debt  and  Taxation  (1918)",  the 
auditor  discusses  classification  of  property,  a  question  before  the  elec- 
torate of  the  state  in  1919  for  their  determination  as  to  its  adoption.  It 
is  stated,  among  remarks:  "The  way  to  encourage  home  builders  and 
home  owners  in  Ohio  is  to  vote  'No'  on  the  classification  amendment 
this  fall." 

This  is  distinctly  propaganda  of  a  political  or  other  nature,  and 
should  never  be  allowed  to  emanate  from  a  public  office.  Instead,  a 
rational  discussion  of  all  aspects  of  the  question  might  be  undertaken, 
if  attempt  was  made  to  give  all  the  facts  available  on  the  subject. 

The  foregoing  citation  is  not  in  accordance  with  the  general  char- 
acter of  publicity  that  the  auditor  has  given  to  the  taxpayers  and  voters 
of  Ohio.  During  his  incumbency  in  the  office  the  present  auditor  has 
given  out  a  large  number  of  public  statements  concerning  the  financial 
conditions  and  problems  of  the  state  and  its  subdivisions.  In  these  he 
has  manifested  an  unusual  spirit  of  fairness  and  fearlessness,  regardless 
of  whether  the  executive,  legislature,  judiciary  or  other  public  officer, 
or  even  the  people  themselves  were  to  be  commended  or  censured.  It 
is  such  pronouncements  by  a  public  official,  elected  to  act  as  watchdog 
of  the  public  treasury,  that  reassures  the  public  that  the  office  is  a  neces- 
sary one  in  the  scheme  of  democracy. 

As  a  result  of  the  agitation  of  the  auditor  for  the  strengthening  and 
improvement  of  the  methods  of  public  finance,  several  pieces  of  con- 
structive legislation  have  been  enacted  for  the  state.  Even  now  there 
are  several  bills  before  the  general  assembly  that  would  promote  even 
more  economical  and  effective  government,  but  owing  to  the  selfishness 
of  local  administrators— as  opposed  to  the  general  good  of  the  public- 
there  is  sufficient  resistance  in  the  legislative  halls  to  prevent  their  adop- 
tion, temporarily.  Not  all  recommendations  of  any  public  officer  meet 
with  the  reception  they  deserve,  and  with  the  frailties  of  human  nature 


124  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

not  all  recommendations  of  any  one  official  prove  sound.  The  legis- 
lative body  of  today,  however,  has  before  it  a  number  of  opportunities 
to  promote  the  economy  it  seeks,  in  both  state  and  local  government. 

BUREAU    OF    INSPECTION    AND    SUPERVISION    OF    PUBLIC    OFFICES 

This  bureau  was  created  in  1902,  and  is  under  the  direction  of  the 
auditor  of  state  as  chief  inspector  and  supervisor.  The  bureau  serves 
as  a  means  of  providing  central  control  by  the  state  over  the  financial 
accounts  and  reports  of  every  political  subdivision  of  the  state  and  of 
every  local  public  officer.  Not  only  are  all  county,  municipal,  village, 
township,  and  school  offices,  and  public  utilities,  inspected  and  supervised, 
and  uniform  systems  of  records  and  reports  prescribed,  but  the  official 
acts  of  these  public  officers  are  investigated  and  they  are  instructed 
in  their  official  duties.  The  beneficial  results  of  the  establishment  and 
maintenance  of  the  bureau  cannot  be  measured  in  dollars,  but  during 
the  period  of  its  existence  vast  sums  have  been  reported  for  recovery 
by  the  several  subdivisions  of  the  state,  and  even  larger  benefits  have  been 
obtained  in  the  increased  efficiency  and  economy  of  local  governmental 
administration  through  the  instructional  work  of  the  bureau  and  the 
preventative  factor  in  such  central  agency.  It  is  probable  that  the  public 
service,  in  the  form  of  a  protection  to  taxpayers'  interests,  performed  by 
this  department  of  the  auditor's  office  has  never  been  appreciated  by  the 
citizens  of  Ohio.  In  the  control  of  its  political  subdivisions  through  the 
bureau,  however,  Ohio  has  assumed  a  foremost  position  among  all  the 
states. 

The  bureau  is  under  the  supervision  of  two  deputy  inspectors  and 
supervisors,  —  one  having  charge  of  the  examinations  of  cities,  villages, 
townships,  justices  of  the  peace,  school  districts  and  public  utilities ;  and 
one  having  charge  of  county  examinations.  To  assist  them,  a  staff  of 
41  examiners  and  19  assistants  has  been  developed, — 26  examiners,  11 
assistants  and  one  engineer  being  assigned  to  the  work  in  cities,  etc., 
and  15  examiners  and  7  assistants  to  county  examinations. 

The  examiners  send  in  detailed  written  reports  of  their  investi- 
gations, which  are  examined  by  the  deputy  in  charge,  and  are  then 
transcribed  in  triplicate  for  submission  to  the  district,  the  official  con- 
cerned, and  the  legal  officer  of  the  district,  as  required  by  statute.  The 
office  receives  numerous  enquiries  from  public  officers,  citizens,  and  exam- 
iners, and  these  are  given  consideration.  In  addition,  two  series  of  bulle- 
tins containing  pertinent  information  and  instruction  to  officers  and 
examiners — one  for  cities,  schools,  townships  and  utilities,  and  another  for 
counties, — are  issued  by  the  bureau  as  occasion  requires. 

Examination  of  the  work  performed  by  the  bureau  during  the  past 
ten  years  discloses  a  substantial  increase,  due  to  a  number  of  causes,  — 
the  natural  growth  in  number  of  taxing  districts,  their  population,  the 
range  of  public  services  performed  by  them  and  the  volume  of  records 


ON   ADMINISTRATIVE   REORGANIZATION  125 

resulting  thereby ;  the  adoption  by  the  State  of  Ohio  of  the  "home  rule" 
amendment  to  the  constitution,  and  consequent  diversity  of  laws  under 
which  different  political  subdivisions  have  operated  since  1912;  the  effect 
of  the  world  war  upon  the  districts,  in  change  of  public  officials,  varia- 
tion in  costs  of  service  and  materials,  and  consequently  in  examining 
the  offices  and  determining  upon  legality  and  economy  of  official  acts 
and  transactions;  and  to  new  legislation  regulating  the  newer  phases  of 
public  service  undertaken  by  government  units. 

There  are  in  Ohio  88  counties,  80  cities,  approximately  800  villages, 
3,600  townships,  and  5,000  school  districts,  all  requiring  periodical  ex- 
amination —  each  township,  village  and  school  district  once  in  each  two 
years,  and  other  public  offices  once  in  each  year.  In  addition,  many 
special  examinations  must  be  made.  All  cities,  villages,  and  counties 
submit  to  the  bureau  a  detailed  financial  report  annually  on  forms  fur- 
nished by  the  bureau. 

Owing  to  the  wide  scope  of  the  examination  and  the  natural  ex- 
pansion in  supervisory  powers  and  duties  of  the  bureau,  it  is  believed 
that  there  should  be  a  reorganization  of  the  bureau  by  the  creation  of 
the  position  of  chief  deputy  supervisor  and  inspector  of  public  offices. 
This  officer  should  be  appointed  by  and  be  subject  to  the  auditor  of  state, 
and  should  have  immediate  and  sole  responsibility  for  the  direction  of  the 
activities  of  the  bureau.  It  is  believed  further  that  there  should  be 
established  under  this  officer  an  organization  of  three  distinct  services, 
instead  of  two  as  at  present.  The  additional  deputy  thus  appointed 
could  be  assigned  to  the  supervision  of  school  districts  and  townships, 
to  the  relief  of  the  deputy  now  including  these  units  with  others  under 
his  direction.  Such  tripartite  subdivision  of  the  work  of  the  bureau  was 
provided  in  the  original  legislation  creating  the  bureau,  but  for  political 
or  other  reasons  the  number  of  deputies  was  reduced  to  two.  Re-estab- 
lishment of  these  three  deputies  is  recommended,  and  in  the  interest  of 
efficiency  in  organization  it  is  desirable  that  their  work  be  placed  under 
the  direction  of  a  single  responsible  official.  Such  organization  should 
result  in  a  maximum  of  economy  and  effectiveness  in  the  administration 
of  local  districts  of  the  state  and  afford  the  state  an  increased  capacity 
of  control  over  their  activities.  The  consideration  in  effecting  such  re- 
organization should,  of  course,  be  that  of  public  service  rather  than 
politics. 

In  enacting  legislation  effecting  such  reorganization,  it  is  believed 
that  recognition  should  be  given  to  the  responsibility  of  the  positions  of 
chief  deputy  and  the  three  deputies  in  charge,  establishing  qualifications 
for  the  position,  and  establishing  for  each  a  rate  of  compensation  suf- 
ficient for  the  responsibility  and  duties. 

It  is  further  suggested  that  the  feasibility  be  considered  of  employ- 
ing all  regular  and  permanent  examiners  by  the  state  on  an  annual 
salary  basis,  in  lieu  of  a  per  diem.    This  course  would  permit  that  they 


126  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

be  called  to  the  auditor's  office  for  conference  and  instruction,  particu- 
larly to  include  the  theory  and  technique  of  accounting.  It  is  probable 
that  those  examiners  best  qualified  should  be  organized  into  a  group 
whose  duty  it  would  be  to  specialize  in  the  devising  and  installing  of 
accounting  systems  in  the  various  subdivisions  of  the  state,  and  period- 
ically to  examine  systems  as  to  their  operation  and  completeness. 

EXPENSES    OF    CONDUCTING    THE    BUREAU. 

The  expense  of  inspection  and  auditing  any  taxing  district  it  is 
provided  by  law  shall  be  borne  by  the  district,  upon  the  auditor's  certifica- 
tion to  the  county.  The  amount  of  charge  for  each  examination  is  de- 
termined by  the  bureau  bookkeeper  from  daily  time  and  cost  records. 
The  total  expense  is  approximately  $135,000  annually,  and  current  costs 
for  the  service  are  advanced  from  a  "rotary  fund"  of  $35,000  appropri- 
ated by  the  general  assembly,  which  fund  is  later  reimbursed  by  the  local 
districts. 

The  expenses  of  maintenance  and  operation  of  the  bureau  are  borne 
by  the  counties  in  proportion  to  their  census.  This  levy  is  computed  by 
the  auditor  of  state,  who  notifies  the  county  auditors  the  rate  to  be  levied. 
It  is  suggested  that  the  entire  cost  of  the  bureau,  both  examination  and 
administration,  should  be  borne  by  a  direct  charge  to  the  district,  rather 
than  a  portion  of  the  expense  being  raised  by  tax  levy.  The  entire  time, 
effort  and  expense  of  the  bureau,  administration  as  well  as  examination, 
are  of  a  regulatory  nature,  serving  the  local  districts  rather  than  any 
direct  and  tangible  service  accruing  to  the  state.  The  amount  of  levy 
is  nearly  $20,000  annually,  which  would  no  longer  need  to  be  raised  by 
a  direct  tax  therefor  if  the  recommendation  is  adopted. 

It  is  recommended  that  this  bureau  continue  as  a  department  of 
the  auditor  of  state's  ofifice,  under  the  proposed  reorganization. 


OFFICE  OF  SECRETARY  OF  STATE 

Prepared  Under  Direction  of 

DR.  L.  D.  UPSON 

By  ARCH  MANDEL 


PRESENT    ORGANIZATION. 

The  secretary  of  state  is  a  constitutional  officer,  elected  for  a  term 
of  two  years  and  receiving  an  annual  salary  of  $6500.  He  is  ex- 
officio  member  of  a  number  of  boards,  as  discussed  in  the  various  re- 
ports of  the  survey. 

The  secretary  of  state  is  the  chief  election  officer  of  the  state,  super- 
vising the  election  machinery  and  enforcing  the  election  laws ;  custodian 
of  the  state's  archives;  superintends  the  publication  and  distribution  of 
the  session  laws;  compiles  the  Ohio  general  statistics;  supervises  the 
registration  of  births  and  deaths;  records  and  files  documents  of  in- 
corporation and  issues  certificates  of  incorporation;  regulates  the  oper- 
ation of  motor  vehicles  and  has  under  his  jurisdiction  the  purchasing  of 
supplies  for  various  state  departments. 

To  carry  out  these  powers  and  duties  the  department  of  state  is 
organized  by  the  following  bureaus  or  divisions,  the  functions  and  the 
organizations  of  which  are  described  in  detail  later  in  the  report : 

Bureau  of  statistics  and  elections. 
Bureau  of  corporations. 
Bureau  of  motor  vehicles. 
Bureau  of  vital  statistics. 
State  purchaising  department. 

PROPOSED  ORGANIZATION. 

It  is  recommended  that: 

1.  The  head  of  the  department  of  state  be  a  secretary  of  state, 
appointed  by  the  governor  and  serving  at  his  pleasure;  that 
the  secretary  of  state  appoint  an  assistant  secretary  of  state 
to  serve  at  his  pleasure, 

2.  The  department  of  state  continue  to  have  custody  of  the 
state's  archives,  publish  and  distribute  sessions  laws  and  be 
the  official  custodian  of  state  papers  and  records  including 
land  records;  also  to  have  the  supervision  and  enforcement 
of  the  election  laws. 

127 


DEFARTI/JiriT    OF    STATE 


Prespnt    Or»anlzotlon 


secretary   of  state 
(elective) 


Bureau  of 
Vital    Statistics 


Bureau   of 
Motor  Vehicles 


Assistant    Secre 

tary   of   state 

(appointive ) 


state    Purchasing 

Depart-Tient 


Bureau   of 
Corporations 


Bureau  of 

Statistics  and 

Zleot  Ions 


Proposed  Organization 


Governor 


Secretary  of  State 
(appointive ) 


Assistant  Secre- 
tary of  State 
(appoint Ive ) 


Bureau  of 
Records 


Bureau  of 
Elect  Ions 


ON   ADMINISTRATIVE   REORGANIZATION  I29 

3.  All  the  functions  now  carried  on  by  the  bureau  of  vital  sta- 
tistics, bureau  of  corporations,  bureau  of  motor  vehicles  and 
the  state  purchasing  department  be  transferred  to  other  de- 
partments as  recommended  in  the  detailed  reports  on  those 
bureaus. 

4.  The  proposed  department  of  state,  for  the  purpose  of  carry- 
ing out  its  duties,  be  organized  to  consist  of  a  bureau  of 
records  and  a  bureau  of  elections,  the  first  in  charge  of  a 
chief  clerk,  the  second  in  charge  of  a  director  of  elections, 
both  officials  to  be  placed  in  the  competitive  classified  serv- 
ice. The  bureau  of  records  will  carry  on  in  addition  to  the 
duties  specified  above,  the  general  administrative  details  of 
the  department  of  state. 

The  organization  of  the  present  and  proposed  organization  of  the 
department  of  state  will  be  discussed  more  fully  in  following  detailed 
reports 

BUREAU  OF  STATISTICS  AND  ELECTIONS 

STATISTICS. 

Source  of  information :  Interviews  with  the  secretary  of  state, 
written  communication  from  the  secretary  of  state ;  inter- 
views with  the  statistician,  study  of  reports. 

DUTIES. 

The  secretar}^  of  state  shall  annually  prepare  from  official  reports 
and  from  the  other  reliable  sources  to  which  he  may  have  access,  tables 
of  statistics  of  the  state  and  report  same  to  the  general  assembly. 

The  secretary  of  state  is  also  the  official  custodian  of  the  state  laws 
and  documents. 

Section  2  of  Article  XV  of  the  state  constitution  provides  that 
"there  may  be  established  in  the  secretary  of  state's  office,  a  bureau  of 
statistics,  under  such  regulation  as  may  be  prescribed  by  law." 

ORGANIZATION. 

To  carry  on  the  many  details  connected  with  election  matters  and 
with  the  preparation  of  statistical  reports,  the  secretary  of  state  employs 
a  statistician. 

There  is  also  employed  in  the  office  proper  a  superintendent  of 
distribution,  a  stockman  and  an  assistant,  who  have  charge  of  the  various 
statistical  publications,  election  supplies,  session  laws,  state  maps,  etc. 
For  the  amount  of  work  in  connection  with  the  distribution  of  documents 
the  number  of  persons  employed  is  excessive.  Were  the  office  of  the 
9 


130  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

secretary  of  state  the  center  of  distribution  of  all  public  documents  issued 
by  the  various  departments,  it  is  possible  that  a  superintendent  of  dis- 
tribution arfd  one  or  more  assistants  would  be  needed,  but  at  present  it 
seems  that  one  person  is  sufficient  to  take  care  of  all  the  distribution  done. 

REPORTS   AND   DOCUMENTS. 

The  statistician  compiles  annually  a  bulky  volume  under  the  title 
of  "Ohio  General  Statistics."  This  publication  is  replete  with  statistics 
of  questionable  value  and  even  if  its  contents  are  of  any  value  the  form 
in  which  they  are  presented  discourages  use  being  made  of  them.  Cer- 
tainly there  are  not  twelve  or  fifteen  thousand  persons  in  Ohio  who  are 
sufficiently  interested  in  the  volume  to  even  want  it.  Yet  that  is  the 
number  printed  annually.  Little  interest  seems  to  be  taken  by  the  de- 
partments in  submitting  material  for  this  report.  It  is  just  another  thing 
that  must  be  done.  In  addition  to  the  "Ohio  General  Statistics",  each 
deparment  publishes  fully  its  own  reports  and  statistics.  Election  sta- 
tistics are  also  compiled  by  the  statistician. 

Session  laws,  attorney  general's  opinions,  constitutional  debates  and 
various  state  maps  are  kept  in  the  secretary  of  state's  office  and  dis- 
tributed from  there.  Maps  are  sold.  These  can  be  sold  more  conveni- 
ently by  the  highway  department,  which  publishes  them. 

RECOMMENDATIONS. 

1.  That  a  bureau  of  reports  and  publications  be  created  in  the 
office  of  the  governor^  the  head  of  w^hich  shall  edit  and  dis- 
tribute all  departmental  reports  and  publications. 

(See  report  of  Gaylord  C.  Cummin  on  "Public  Printing") 
In  the  last  analysis  the  governor  is  responsible  for  the  administration 
of  public  business  by  the  state  government  and  since  it  is  the  accomplish- 
ments of  his  departments  that  are  published,  it  is  logical  that  he,  through 
his  agent,  supervise  and  criticise  the  publications  as  they  are  issued. 
The  printing  commission  performs  this  function  now  and  the  manner 
of  its  functioning  is  the  best  recommendation  for  its  abolition. 

2.  That  a  bureau  of  records  be  created  in  the  office  of  the  secre- 
tary  of   state. 

This  bureau  will  have  the  custody  of  all  documents  and  laws,  will 
superintend  the  publication  and  distribution  of  the  session  laws  and 
will  perform  the  administrative  detail  of  the  department. 

3.  That  the  collection  and  publications  of  statistics  by  the  secre- 
tary of  state  be  discontinued  except  such  statistics  as  may 
be  part  of  the  functions  of  the  bureau  of  elections. 

(See  Dr.  Allen's  report  on  the  "Bureau  of  Vital  Statistics".) 


ON   ADMINISTRATIVE   REORGANIZATION  I3I 

The  recommended  bureau  of  reports  and  publications  of  the  gover- 
nor's office  will  supervise  the  collection  and  publication  of  whatever  sta- 
tistics the  state  may  publish. 

ELECTIONS. 

The  secretary  of  state,  by  virtue  of  his  office,  is  the  "state  super- 
visor and  inspector  of  elections  and  the  state  supervisor  of  elections." 

As  such  he  appoints,  upon  the  recommendation  of  the  executive  com- 
mittees of  the  two  political  parties  in  the  county  casting  the  highest  and 
next  highest  number  of  votes  in  the  state  at  the  next  preceding  election, 
the  deputy  state  supervisors  and  inspectors  and  the  deputy  supervisor 
of  elections.  These  officials  and  the  clerks  of  the  election  boards  are 
removable  by  the  secretary  of  state  for  misfeasance  or  malfeasance  in 
office  or  for  any  other  good  cause. 

Included  in  the  supervision  of  elections  is  the  preparation  of  all 
forms  of  official  ballots,  the  arranging,  publishing  and  distributing  of 
all  publicity  matter  pertaining  to  initiative  and  referendum  questions  and 
constitutional  amendments,  recording  and  filing  election  returns  and  com- 
piling election  statistics.- 

All  the  detailed  work  connected  with  the  carrying  out  of  the  secre- 
tary of  state's  duties  as  the  supervisor  of  elections  is  done  by  the  sta- 
tistician. 

RECOMMENDATIONS. 

1.  That  a  commissian  be  appointed  to  revise  and  codify  the 
election  laws  and  to  create  less  cumbersome  smd  less  ex- 
pensive machinery  for  carrying  on  elections. 

It  is  a  matter  of  comomn  knowledge  that  the  election  machinery  of 
tne  state  of  Ohio  is  cumbersome  and  more  expensive  than  need  be.  A 
number  of  abortive  attempts  have  been  made  to  reform  the  processes  of 
election  in  Ohio. 

The  present  election  laws  are  an  accreation  of  laws  and  amend- 
ments passed  from  time  to  time,  adding  continually  to  the  already  com- 
plex set  of  regulations.  The  laws  need  reviewing,  so  that  consistent 
and  unified  regulations  may  be  prepared. 

As  the  study  of  the  election  laws  and  their  application  is  a  subject 
for  extended  study  outside  of  the  province  of  this  survey,  no  detailed 
recommendations  as  to  changes  in  the  election  laws  are  given.  However, 
following  are  listed  a  number  of  changes  that  would  result  in  greater 
economy  in  operating  the  election  machinery,  and  at  the  same  time  would 
safeguard  the  interests  of  the  voters: 

1.  Abolition  of  the  full  time  paid  boards  of  deputy  supervisors  and 
inspectors  and  boards  of  deputy  supervisors. 

2.  Creation  of  ex-officio  election  boards  made  up  of  county  and 
city  officers. 


132  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

3.  Carrying  out  the  administrative  details  connected  with  con- 
ducting elections  in  the  office  of  the  county  clerk. 

4.  Introduction  of  quadriennial  registration  in  those  cities  —  having 
a  population  of  100,000  or  more  —  where  annual  registration 
is  now  required. 

5.  Providing  for  all-year-round  registration  in  those  cities  where 
registration  is  required.  At  the  present  time  registration  is 
required  in  all  cities  having  a  population  of  11,800  or  over. 
Quadriennially,  one  or  two  special  registration  days  may  he 
advisable. 

CORPORATION  DIVISION. 

SOURCE    OF    INFORMATION. 

Secretary  of  state,  assistant  secretary  of  state  and  corporation  ad- 
viser. 

POWERS    AND    DUTIES. 

Articles  of  incorporation  shall  be  filed  with  the  secretary  of  state 
who  shall  record  every  certificate  relating  to  such  corporations  thereafter 
filed. 

The  secretary  of  state  shall  not  file  or  record  any  articles  of  in- 
corporation wherein  the  name  is  likely  to  mislead  the  public  as  to  the 
nature  or  purpose  of  the  business  or  if  such  name  is  similar  to  existing 
corporations. 

The  secretary  of  state  shall  each  month  file  with  the  tax  commission 
a  list  of  all  new  corporations,  changes  in  capital  stock  of  existing  corpora- 
tions and  dissolutions. 

ORGANIZATION. 

The  division  of  corporations  is  under  the  direct  charge  of  the  cor- 
poration adviser,  who  is  appointed  by  the  secretary  of  state  and  serves  at 
the  latter's  pleasure. 

PROCEDURE. 

Applications  for  authority  to  incorporate  and  to  do  business  as  a 
corporation  for  or  not  for  profit  in  the  state  of  Ohio,  are  submitted  to 
this  office,  and  if  the  articles  of  incorporation  meet  all  the  legal  require- 
ments, they  are  recorded  and  filed. 

Every  month  the  corporation  adviser  submits  to  the  state  tax  com- 
mission a  list  of  incorporations  allowed.  On  the  other  hand  the  tax  com- 
mission reports  to  the  corporation  adviser  any  increase  made  to  its 
capital  stock  by  any  corporation,  on  failure  to  pay  taxes. 

With  the  granting  of  the  certificate  of  incorporation  the  responsi- 
bility of  the  secretary  of  state  ceases.  However,  before  a  corporation 
for  profit  is  allowed  to  operate  its  sale  of  securities,  its  financial  ability 
to  carry  on  the  business  must  be  investigated  and  approved  by  the  com- 


ON   ADMINISTRATIVE  REORGANIZATION  133 

missioner  of  securities.     The  corporation  division  of  the  secretary  of 
state's  office  makes  no  investigation. 

Corporations  operating  not  for  profit  are  not  investigated  except 
in  those  instances  where  the  corporation  wishes  to  operate  a  day  nursery, 
orphan  asylum,  or  other  institutions  dealing  with  children,  when  an  in- 
vestigation is  made  by  the  state  board  of  charities.  The  failure  to  in- 
vestigate corporations  organized  to  operate  hospitals,  eleemosynary  insti- 
tutions or  other  philanthropic  agencies  is  a  serious  matter,  because  of  the 
possibility  of  allowing  irresponsible  groups  to  exploit  the  public  and 
to  operate  institutions  that  are  a  menace  to  the  community  and  to  the 
inmates.  All  such  institutions  should  be  under  the  constant  supervision 
of  a  state  agency. 

REPORTS  BY   CORPORATIONS. 

All  corporations  operating  for  profit  render  reports  of  one  kind 
or  another  to  the  corporation  adviser  of  the  secretary  of  state's  office, 
to  the  commissioner  of  securities  and  to  the  tax  commission.  Public 
utility  corporations  make  a  fourth  report  to  the  public  utilities  com- 
mission. In  other  words,  corporations  do  business  with  three  and  some- 
times four  state  agencies,  furnishing  separately  much  common  informa- 
tion. '  This  procedure  complicates  matters  both  for  the  state  and  for 
the  corporations. 

RECOMMENDATIONS. 

1.  That  there  be  created  a  bureau  of  corporations  in  which  will 
be  concentrated  the  functions  now  delegated  to  the  corpora- 
tion division  of  the  department  of  state  auid  to  the  commis- 
sioner of  securities.  (See  report  of  Gaylord  C.  Cummin  on 
the  "Commissioner  of  Securities".) 

Such  concentration  of  functions  will  enable  the  state  to  maintain 
complete  records  of  the  history  and  operation  of  corporations,  thereby 
afifording  a  simpler  yet  more  effective  method  of  supervisions  of  cor- 
porations. The  advantages  of  combining  in  one  agency  the  investigations 
and  granting  of   certificates   of   incorporation   are   obvious. 

2.  That  the  bureau  of  corporations  be  made  a  subdivision  of  the 
department  of  trade  and  commerce  and  that  the  head  of 
this  bureau  be  placed  in  the  classified  service. 

The  department  of  trade  and  commerce  will  concentrate  under  one 
head  the  relation  of  the  state  to  financial  organizations  of  all  kinds. 

3.  That  corporations  organized  not  for  profit  but  which  will 
operate  hospit2ds,  eleemosynary  institutions  or  other  philan- 
thropic agencies  be  investigated  and  approved  by  the  board 
of  administration  before  a  certificate  of  incorporation  is 
granted. 


134  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

This  recommendation  contemplates  the  right  of  investigation  at  all 
times  and  the  power  by  the  board  of  administration  to  recommend  for 
cause  the  withdrawal  of  the  charter. 

4.     That  an  effort  be  made  to  reduce  the  number  of  reports  re- 
quired by  the  state  of  corporations. 

It  seems  practicable  to  make  the  bureau  of  corporations  the  single 
recipient  of  reports  from  corporations  and  to  have  this  biu^eau  make  such 
certifications  as  are  necessary  to  any  other  agencies  of  the  state.  This 
does  not  mean  that  less  information  should  be  requested  of  corporations, 
but  it  does  seem  that  duplication  of  furnishing  similar  information  to 
the  number  of  state  agencies  be  eliminated. 

DIVISION  OF  AUTOMOBILES. 

SOURCES  OF   INFORMATION. 

Registrar  of  automobile  licenses,  correspondence  with  automobile 
licensing  agencies  of  the  other  states. 

ORGANIZATION. 

In  direct  charge  of  the  automobile  licensing  division  is  the  registrar 
who  is  appointed  by  the  secretary  of  state  and  serves  at  the  latter's 
pleasure.  The  division  has  twenty  permanent  employees  —  including 
clerks,  typists,  cashiers,  shipping  clerk  and  inspectors.  During  the  height 
of  the  year's  work,  temporary  employees  are  added  to  the  permanent 
force.  It  is  interesting  to  note  that  although  the  number  of  licenses 
issued  in  1919  was  more  than  double  the  number  issued  in  1915  —  over 
500,000  against  less  than  200,000  —  the  number  of  permanent  employees 
remained  the  same. 

No  branch  officers  in  other  parts  of  the  state  are  maintained  but  the 
assistance  of  forty-two  automobile  clubs  has  been  enlisted  which,  without 
cost  to  the  state,  use  their  machinery  and  organizations  to  issue  auto- 
mobile licenses  in  their  respective  cities  and  vinicinties.  These  clubs  are 
all  under  bond  and  remit  money  collected  at  the  close  of  every-  week's 
business.  This  practice  of  using  automobile  clubs  is  a  commendable  one 
and   should  be  continued  as  long  as  their  cooperation  can  be   secured. 

OPERATION. 

Although  it  was  not  the  intent  of  this  survey  to  make  an  operation 
study,  a  general  review  of  the  office  procedure  revealed  the  fact  that 
the  records  kept  were  good  and  afforded  a  ready  reference  to  all  licenses 
issued,  to  whom  issued,  etc.  The  number  of  clerks  employed  had  ap- 
parently enough  to  do  to  maintain  up-to-date  the  system  used. 

In  connection  with  the  system  it  is  suggested  that  cross  filing  by 
factory    number    and   by   motor    number   would   enable    the    automobile 


ON   ADMINISTRATIVE  REORGANIZATION  135 

division  to  detect  the  seeking  of  licenses  for  stolen  automobiles.  In 
view  of  the  fact  that  the  value  of  the  automobiles  stolen  reaches  into 
the  hundreds  of  thousands  annually  in  the  state  of  Ohio,  it  would  seem 
worth  while  as  a  service  to  the  people  of  the  state  to  maintain  a  complete 
record  of  stolen  automobiles  to  be  operated  in  cooperation  with  police 
departments  of  the  state.  In  fac,t  because  of  its  inter-state  aspects,  the 
recovery  of  stolen  automobiles  needs  the  cooperation  of  the  state  licensing 
agencies,  working  through  clearing  houses  formed  by  groups  of  adjacent 
states.    To  maintain  the  records  suggested  more  clerks  will  be  needed. 

Compared  to  other  states,  Ohio  is  operating  its  automobile  division 
very  economically.  The  following  tabulation  of  information  received 
from  other  states  shows  this  to  be  the  case: 

Total  No.  Licenses  Total 

State.  of  All  Kinds  Issued.  No.  Employees.        Salary  Roll. 

Massachusetts   245,547— Vehicle— (Sept.  30) 

264,657-ChaufTeur  $76,805  00 

Missouri    238,000  $23,800  00 

(Law   pi-ovides   maximum   of  $1,000   for 
each    10,000    plates) 

Iowa    356,474  $55,000  00 

Pennsylvania  476,246  38  regular 

29  temporary 

Illinois    472,650  50 

Wisconsin    234,340  $12,500  00 

Ohio    500,000  plus  20  regular  $24,005  95 

I 
The  above  table,  while  not   statistically  scientific,  indicates  enough 
to  warrant  the  statement  made. 

It  is  inevitable;  because  of  the  seasonal  nature  of  the  work,  to  have 
some  of  the  employees  —  cashiers,  shipping  clerk  and  others  directly  con- 
cerned with  issuance  of  licenses  —  idle  a  great  portion  of  the  year.  This 
will  be  corrected  if  the  automobile  division  is  included  in  a  department 
where  idle  time  can  be  used. 

AUTOMOBILE    LICENSE    DIRECTORY. 

Every  year  the  automobile  division  issues  200  copies,  in  19  volumes, 
of  an  automobile  license  directory  containing  the  name  and  address  of 
every  automobile  owner  and  the  number  of  the  license  issued  him.  Each 
volume  costs  $900  to  publish.  The  copies  are  furnished  to  automobile 
clubs  and  to  all  chiefs  of  police  and  sherififs  in  Ohio. 

The  value  of  the  directory  lies  entirely  in  the  promptness  of  its 
publication.  Although  over  300,000  licenses  were  issued  in  January 
1919,  up  to  November  1919,  when  the  survey  was  made,  volumes  con- 
taining a  directory  of  only  200,000  had  appeared.  In  other  words,  in 
the  eleventh  month  of  the  year  the  volumes  printed  did  not  cover  even 
the  first  month's  issue  of  licenses.     Under  these  circumstances  the  $19,- 


136  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

800  which  was  spent  in  1919  for  a  directory  is  practically  wasted  and  the 
printing  of  the  directory  may  just  as  well  be  discontinued. 

The  secretary  of  state  is  considering  a  plan  by  which  one-half  the 
cost  of  publishing  these  volumes  can  be  saved.  It  is  to  have  the  work 
done  by  multigraph  instead  of  by  the  present  process  of  printing.  This 
plan  is  recommended  as  convenient  and  economical,  particularly  if  the 
state  should  adopt  the  recommendations  relating  to  the  establishing  of  a 
multigraph  shop,  made  by  Mr.  Cummin  in  his  report  on  "Public  Print- 
ing". It  is  further  suggested  that  instead  of  publishing  the  directory  in 
bound  form,  a  loose  leaf  form  be  adopted,  so  that  at  the  end  of  every 
week  the  licenses  issued  during  the  week  could  be  published  on  detached 
sheets  and  mailed  out.  Those  receiving  the  directory  could  provide  them- 
selves with  a  standard  loose  leaf  binder  for  filing  the  directory. 

RECOM  MENDATIONS. 

1.  That  the  automobile  division  be  transferred  to  the  depart- 
ment of  finance  and  be  called  the  bureau  of  motor  vehicle 
licenses.  (See  C.  E.  Rightor's  report  on  the  "Department  of 
Finance".) 

Under  the  contemplated  organization  of  the  department  of  finance, 
it  seems  logical  to  place  the  issuing  of  automobile  licenses  in  that  de- 
partment. Furthermore,  it  will  permit  sufficient  flexibility  so  that  the 
leisure  time  of  some  of  the  employees  of  the  automobile  bureau  will  be 
made  productive. 

2.  That  a  graduate  scale  of  fees,  based  upon  horse-power  and 
weight  of  automobiles,  be  adopted. 

Not  only  will  this  produce  a  larger  revenue  but  it  is  entirely  fitting 
that  the  more  powerful  and  heavier  vehicles  pay  more  than  the  smaller 
and  fighter  ones.  With  the  present  cost  of  building  roads  and  in  view 
of  the  vast  sums  spent  on  extending  good  roads,  the  present  fee  is 
entirely  too  low. 

3.  That  the  law  fixing  the  license  fees  include  the  provisions 
requiring  county  auditors  to  issue  licenses  in  their  respective 
counties,  and  that  they  be  compensated  only  for  the  actual 
cost  of  clerk  hire  during  the  first  two  months  of  the  years. 

This  does  not  mean  that  the  assistance  of  the  automobile  clubs  should 
be  discarded,  for  during  the  peak  load  of  the  year  the  combined  sendees 
of  the  county  auditors  and  the  automobile  clubs  will  not  prove  more 
than  is  needed. 

Furthermore,  reducing  the  congestion  in  Columbus  will  enable  the 
automobile  bureau  to  operate  its  office  procedure  more  satisfactorily. 

As  to  compensation  for  county  auditors,  it  will  be  found  that  only 
(luring  the  rush  season  —  the  early  part  of  the  year  —  will  it  be  necessary 
for  them  to  hire  additional  help. 


ON   ADMINISTRATIVE  REORGANIZATION  137 

4.  That  the  automobile  license  <firectory  be  published  promptly 
or  else  be  discontinued;  abo  that  it  be  published  as  suggested 
in  the  body  of  this  report. 

5.  That  more  permanent  employees  be  added  to  the  automobile 
bureau  in  order  that  the  additional  records,  suggested  above, 
be  installed  and  maintained. 

6.  That  all  chauffeurs  and  all  persons  driving  automobiles  be 
licensed. 

This  will  not  only  furnish  a  substantial  revenue  to  the  state  but 
would  enable  the  state  and  local  authorities  to  eliminate  careless  and 
reckless  driving  by  the  power  to  withhold  and  to  withdraw  licenses  from 
individuals  convicted  of  operating-  motor  vehicles  in  any  manner  detri- 
mental to  public  welfare. 

STATE  PURCHASING  DEPARTMENT. 

SOURCES   OF   INFORMATION. 

Interviews  with  present  and  former  purchasing  agents  and  a  survey 
of  records  and  procedure  followed. 

ORGANIZATION. 

The  state  purchasing  department,  a  subdivision  of  the  office  of  the 
office  of  the  secretary  of  state,  is  under  the  direct  charge  of  the  state 
purchasing  agent  who  is  appointed  by  the  secretary  of  state  and  whose 
term  of  office  is  coterminus  with  that  of  the  secretary  of  state.  The 
purchasing  agent  employs  three  clerks,  one  stenographer  and  one  stock- 
keeper. 

The  state  purchasing  agent  buys  supplies,  materials  and  equipment 
for  all  departments,  except  the  — 

Courts. 

Board  of  administration. 

Ohio  national  guard. 

All  educational  institutions. 

Boards  of  election  supervisors. 

Agriculture  experiment  stations 

Public  printing. 

In  addition  to  these  statutory  exemptions  the  highway  department, 
through  a  ruling  of  the  attorney  general,  may  buy  its  own  supplies. 
The  department  accordingly  does  practically  all  of  its  own  purchasing. 

These  exemptions  leave  the  state  purchasing  agent  very  little  to 
do  because  the  few  departments  for  which  he  functions.  He  purchases 
only  minor  supplies,  materials  and  equipment.  The  total  purchases 
made  by  the  state  purchasing  agent  for  the  year  ending  June  30,  1919, 
amounted  to  $242,000  as  against  over  $5,000,000  expended  by  the  board 


138  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

of  administration  alone  by  its  purchasing  agent.  Accordingly  it  is  self- 
evident  that  the  state  of  Ohio  has  no  state  purchasing  department  in  the 
true  sense  of  the  word,  and  as  long  as  the  impression  is  had  that  the 
present  department  is  a  state  purchasing  department  it  serves  only  to 
stand  in  the  way  of  the  creation  of  one  that  may  be  really  effective  as 
an  agent  of  economy. 

The  purchasing  agent  also  conducts  an  exchange  department  through 
which  he  sells  non-usable  equipment  turned  in  by  the  various  depart- 
ments. 

PROCEDURE  IN  PURCHASING  AGENT's  OFFICE. 

Modern  procedure  as  to  requisitions,  bids  for  proposals,  orders  and 
store  records  are  used.  Buying  is  competitive  within  limits,  the  limits 
being  automatically  set  up  by  the  lack  of  uniform  specifications. 

A  store-room  in  which  is  kept  standard  stationery  and  office  sup- 
plies commonly  used  by  departments  is  operated. 

The  purchasing  department  as  now  operated  is  merely  another  step 
in  the  life  of  requisitions  and  orders,  and  except  for  the  supplies  kept 
in  store  it  performs  a  very  minor  function  in  the  business  of  the  state. 

No  attempt  was  evident  of  standardizing  commodities  used  or  of 
buying  on  definite  standard  specifications.  Paper  stock,  the  largest 
single  item  bought  by  the  purchasing  agent,  is  bought  on  sample,  no 
effort  being  made  to  fit  the  quality  to  the  use  to  which  it  is  to  be  put. 
The  letting  of  the  printing  itself  is  done  through  the  Printing  Com- 
mission.    (See  report  of  Gaylord  C.  Cummin  on  "State  Printing".) 

In  instances  where  it  seems  more  advisable  for  a  department  to  do 
its  own  buying  directly,  the  purchasing  agent  has  the  right  to  grant  a 
release  to  tlie  department  for  the  purchases  of  any  particular  commodity. 
This  practice  may  be  carried  to  extremes,  as  was  noted  in  the  instance  of 
the  bureau  of  fish  and  game,  where  a  release  was  granted  for  a  whole 
year  for  practically  everything  the  bureau  buys.  As  a  rule,  however,  a 
standard  release  is  given  covering  the  purchase  of  stamps,  telephone, 
etc.,  the  purchase  of  which  can  be  done,  just  as  well,  by  the  department 
itself. 

RECOM  MENDATIONS. 

1.     That  a  state  purchasing  department,  to  buy  for  all  depart- 
mentSy  institutions  and  commissions,  be  created. 

Large  economies  can  be  effected  through  the  quantity  buying  that 
would  result  if  all  purchases  were  made  through  one  agency.  In  the  few 
instances  where  it  might  be  found  impractical  to  do  the  actual  purchasing 
by  the  purchasing  agent,  specific  releases  could  be  issued. 

The  board  of  administration,  with  its  institutions  in  all  parts  of  the 
state,  finds  it  advantageous  and  practical  to  buy  through  one  agent 
located  in  Columbus. 


ON   ADMINISTRATIVE  REORGANIZATION  139 

2.  That  the  purchasing  agency  be  made  a  bureau  of  the  de- 
partment of  finauice. 

The  recomemndation  of  the  creation  of  the  department  of  finance 
and  its  functions  is  discussed  by  C.  E.  Rightor  in  the  report  on  the 
"Department  of  Finance". 

3.  That  at  the  head  of  the  bureau  of  purchasing  be  placed  a 
qualified  purchasing  agent,  to  be  placed  under  the  classified 
service  and  to  hold  office  as  long  as  he  proves  competent. 

Political  affiliations  furnish  meager  qualifications  and  training  for 
acting  as  a  state  purchasing  agent  with  every  change  of  administration. 
Buying  is  recognized  as  a  technical  job  for  which  specific  training  and 
experience  is  required,  and  it  is  only  fair  to  the  citizens  of  Ohio  that 
a  man  buying  supplies,  materials  and  equipment  for  millions  of  dollars 
annually,  be  qualified  to  do  so  economically  and  efficiently. 

The  board  of  administration  presents  a  good  example  of  what  a 
qualified  purchasing  agent  can  do. 

By  making  the  purchasing  agency  a  subdivision  of  a  department 
rather  than  an  independent  department,  continuity  of  service  can  be  had, 
even  if  the  head  of  the  department  is  changed  bi-annually. 

4.  That  all  printing  be  let  through  the  state  purchasing  agent 
on  competitive  bidding,  just  as  any  other  conmiodity  is 
bought. 

There  is  no  good  reason  why  the  buying  of  printing  should  be  done 
by  a  special  commission.  (See  report  of  Gaylord  C.  Cummin  on  "Public 
Printing".) 


THE  DEPARTMENT  OF  FINANCE 

Prepared  Under  the  Direction  of 

DR.  L.  D.  UPSON 

By  C.  E.  RIGHTOR 


To  conduct  all  the  administrative  activities  with  respect  to  the 
financial  affairs  of  the  state,  it  is  recommended  that  a  new  department 
be  created,  to  be  called  the  department  of  finance.  This  department  will 
assume  those  functions  that  have  to  do  with  the  levy,  assessment,  collec- 
tion, disbursement  and  custody  of  state  funds,  and  maintenance  of  ade- 
quate records  thereof,  which  are  now  performed  by  the  auditor  of  state, 
and  to  some  extent  by  other  offices.  The  head  of  the  department,  who 
would  be  titled  director  of  finance,  should  be  an  administrative  officer, 
appointed  by  the  governor  and  removable  by  him  at  pleasure. 

The  activities  properly  falling  within  the  province  of  the  depart- 
ment include  the  following: 

Bureau  of  accounting 

Bureau  of  income  and  taxation 

Bureau  of  motor  vehicle  licenses 

Bureau  of  treasury 

Bureau  of  purchasing. 

BUREAU    OF    ACCOUNTS. 

The  department  of  accounting  should  be  transferred  from  the  and  ':)r 
of  state  to  this  department.  The  office  should  be  under  the  direct  super- 
vision of  a  chief  accountant,  who  should  be  subject  to  civil  service  regu- 
lations. 

BUREAU  OF  INCOME   AND  TAXATION. 

This  bureau  should  be  established  to  perform  the  work  of  assess- 
ing and  levying  taxes  on  corporations,  foreign  insurance  companies, 
banks,  etc. ;  supervising  the  assessment  and  equalization  of  general  prop- 
erty valuations,  and  the  computation  of  state  taxes  on  property;  de- 
lermining  franchise  valuations  and  taxes  on  same;  and  the  issuance  of 
all  licenses  and  collection  of  all  fees  upon  the  recommendation  of  the 
departments  concerned,  except  motor  vehicle  licenses.  These  activities 
are  now  performed  by  several  offices,  dependent  upon  the  particular 
»cind  of  income. 

The  head  of  this  bureau  should  be  a  qualified  accountant,  subject  to 
civil  service  requirements. 

140 


ON    ADMINISTRATIVE   REORGANIZATION 


141 


For  the  purpose  of  equalizing  assessments  of  the  several  counties 
of  the  state  and  fixing  the  aggregate  assessment  of  real  and  personal 
oroperty  on  which  the  state  tax  is  levied,  an  ex  officio  board  of  equaliza- 
tion, consisting  of  the  head  of  the  bureau  of  income  and  taxation,  the 
director  of  finance,  the  attorney  general  and  the  auditor  of  state,  should 
be  created  within  this  bureau. 


ELECTORATE 


DEPAETMEKT  OF 
PINMCE 


PROPO  SED 
ORGANIZATION 


GOVERUOR 


DEPARTlffiET  OP 
PIHAUCE 


BUREAU  OP   PURCHASING 


BUREAU  OP 
INCOME   &   TAXATION 


BUREAU  OP  TREASURY 


BUREAU    OF    MOTOR   VEHICLE    LICENSES. 

The  function  of  issuing  motor  vehicle  licenses  now  conducted  by 
the  secretaiT  of  state  should  be  taken  over  by  this  proposed  bureau. 
The  reason  for  recommending  this  transfer  is  that  the  activity  is  primarily 
one  o.f  producing  an  income  for  the  state.  Owing  to  the  extent  of  the 
work  it  is  proposed  to  establish  an  independent  bureau,  rather  than  in- 
clude the  work  within  the  bureau  of  income  and  taxation. 

It  is  felt  that  a  separate  bureau  for  this  work  should  not  prohibit 
the  director  of  finance  from  transferring  employees  from  this  bureau  to 
other  bureaus  within  the  department,  as  occasion  requires  dependent  upon 


142  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

seasonal  or  other  fluctuation  of  the  work,  and  thus  should  permit  him  to 
keep  his  permanent  staff  a  minimum  number. 

The  function  of  motor  vehicle  registration  is  also  regulatory,  and 
requires  close  cooperation  with  local  police,  sheriffs,  courts,  and  other 
officials.  Reports  should  be  kept  in  loose  leaf  form,  to  promote  prompt 
cooperation  and  permit  copies  to  be  prepared  easily  for  transmission  to 
local  officers. 

It  is  also  suggested  that  the  inauguration  by  the  bureau  of  the  prac- 
tice of  using  city  and  county  offices  throughout  the  state  as  distributing 
agencies,  without  payment  of  any  fee  or  other  compensation  therefor, 
would  facilitate  performance  of  this  work.  This  practice  has  been 
successful  in  some  other  states. 

BUREAU  OF  TREASURY. 

It  is  further  recommended  that  the  director  of  finance  have  the  duty 
of  and  responsibility  for  the  collection  of  all  state  income,  and  the  custody 
and  disbursement  of  all  state  and  trust  funds  and  securities.  This 
activity  should  be  conducted  through  a  bureau  of  treasui'y,  the  head  of 
which  should  be  a  treasurer,  selected  by  the  director,  subject  to  civil 
service  regulations. 

The  work  of  this  proposed  bureau  is  now  performed  by  the  state 
treasurer,  and  the  constitution  provides  that  the  treasurer  shall  be  one 
of  the  executive  officers  of  the  state.  Owing  to  the  fact  that  the  duties 
naturally  falling  to  this  office  —  namely,  the  collection  disbursement  and 
custody  of  state  and  trust  funds,  is  but  one  of- the  several  steps  in  the 
process  of  state  finance,  it  is  believed  that  the  work  should  be  placed  on 
the  same  plane  as,  and  be  handled  in  a  manner  similar  to,  the  coordinate 
steps.  Further,  with  provision  for  an  audit  of  the  transactions  and 
records  of  the  office  at  any  time,  by  an  independent  office  of  auditor  of 
state,  there  does  not  exist  the  necessity  for  a  separate  department  of  the 
treasury  which  obtains  when  the  functions  of  audit  and  accounting  con- 
trol are  under  the  supervision  of  a  single  officer. 

It  may  be  pertinent  in  this  connection  to  remind  the  citizens  of 
Ohio  that  while  the  constitution  of  the  state  provides  for  a  state  treasurer 
as  one  of  the  six  executive  officers  chosen  by  the  electorate,  for  a  term 
of  two  years,  the  duties  of  such  office  are  not  specifically  set  forth  in  the 
constitution.  In  the  absence  of  a  definite  delegation  by  constitution  of 
the  powers  and  duties  of  the  office,  it  may  be  assumed  that  the  framers  of 
the  document  contemplated  that  such  duties  as  are  inherent  to  the  gen- 
eral conception  and  definition  of  such  office  would  be  prescribed  by 
statute.  This  is  the  course  that  has  followed.  Review  of  the  laws  affect- 
ing the  office  of  state  treasurer  discloses  that  the  responsibilities  and 
duties  delegated  to  the  office  are  fundamentally  of  an  administrative  na- 
ture. —  to  act  as  banker.  In  light  of  this  fact,  it  is  believed  that  a  proper 
organization  of  the  state  government  dictates  that  these  duties  should 


ON   ADMINISTRATIVE  REORGANIZATION  I43 

be  performed  by  an  administrative  officer  under  the  control  of  the  chief 
executive  of  the  state. 

The  removal  from  constitutional  provision  of  the  office,  therefore, 
would  not  have  any  deterrent  ettect  in  getting  done  the  work  which 
naturally  accrues  to  the  office,  but  would,  on  the  contrary,  strengthen  the 
position  of  the  chief  executive  as  the  official  responsible  for  the  proper 
performance  of  these  administrative  activities.  This  action  would  re- 
duce by  one  the  number  of  offices  for  which  the  citizens  would  exercise 
their  electoral  privilege  at  each  biennial  period,  but  it  may  safely  be  as- 
serted that  the  electorate  cannot  choose  a  state  treasurer  intelligently  be^ 
cause  a  vast  majority  of  voters  cannot  have  a  personal  acquaintance  with 
the  candidates  for  the  position  or  with  the  successful  candidate.  It  is 
believed  preferable  that  the  citizenship  should  concentrate  their  attention 
on  getting  a  strong  chief  executive  and  then  holding  him  responsible  for 
putting  qualified  men  in  the  administrative  departments  of  the  govern- 
ment. 

This  conclusion  has  no  reference  to  the  present  incumbent  of  the 
office,  who  is  deemed  a  highly  capable  public  officer. 

BUREAU  OF  PURCHASING. 

The  function  of  purchasing  all  commodities  (other  than  personal 
services)  required  by  any  office  or  department  of  the  state,  including 
all  contractual  services,  supplies,  materials,  equipment,  and  property, 
whether  by  open  market  order  or  by  contract,  can  most  satisfactorily 
be  undertaken  through  a  central  office,  from  the  point  of  view  both  of 
economy  and  service  to  the  state  offices. 

While  the  function  of  purchasing  is  not  inherently  a  part  of  the 
work  of  a  department  of  finance,  it  involves  the  exchange  of  values 
for  the  work  of  the  state,  and  in  the  process  of  reorganization  and  con- 
solidation it  is  believed  inexpedient  to  create  a  separate  and  independent 
department  of  purchasing. 

This  bureau  should  be  in  charge  of  a  purchasing  agent,  appointed 
by  the  director  of  finance,  and  should  be  a  qualified  officer  for  the  duties 
of  a  position,  subject  to  civil  service  regulations. 

The  purchasing  activities  of  the  secretary  of  state,  the  state  pur- 
chasing agent,  the  board  of  administration,  the  highway  department,  and 
the  Ohio  state  university,  and  other  offices  now  exempt,  should  be 
combined  in  this  one  central  office.  The  position  of  supervisor  of  state 
printing  and  the  state  printing  commission  would  also  be  absorbed  by 
this  bureau. 

The  results  made  possible  through  such  concentration  of  purchasing 
all  supplies,  materials  and  equipment  for  a  going  organization  of  the 
vast  size  of  the  state  of  Ohio  are  indicated  in  Mr.  Arch  Mandel's  report 
on  "State  Purchasing",  and  need  not  be  restated. 


TREASURER  OF  STATE 

Prepared  Under  the  Direction  of 

DR.  L.  D.  UPSON 

By  HENRY  STEFFENS,  Jr. 


An  examination  of  the  work  of  the  state  treasurer  was  made  through 
conferences  with  that  officer  and  his  subordinates,  and  an  insi>ection  of 
the  books  and  records,  files,  and  the  routine  procedure  of  the  office. 

The  work  of  the  office  is  administrative  in  character,  and  for 
reasons  discussed  at  length  in  the  report  on  the  department  of  finance, 
bureau  of  treasury,  it  is  believed  the  organization  of  the  state  govern- 
ment would  be  improved  by  a  constitutional  amendment  abolishing  the 
state  treasurer  as  an  executive  office  of  the  state,  and  legislation  trans- 
ferring the  duties  of  the  office  to  the  proposed  department  of  finance. 

The  office  of  the  state  treasurer  concerns  itself  with  — 

1.  The  collection  and  receipt  of  all  moneys  due  the  state; 

2.  The  cashing  of  warrants  drawn  by  the  auditor  of  state; 

3.  The  custody  and  record  of  the  securities  and  several  trust  funds 
placed  in  his  care ; 

4.  The  billing  of  excise  taxes ; 

5.  The  keeping  of  the  necessary  records  indicating  the  cash  bal- 
ances at  the  various  active  and  inactive  depositories ; 

6.  Records  analyzing  the  receipt  and  disbursement  of  the  state 
funds. 

The  work  of  the  office  appeared  to  be  conducted  in  an  efficient  man- 
ner, as  was  evidenced  by  the  fact  that  on  the  day  of  the  detailed  in- 
vestigation of  the  procedure,  records,  files,  etc.,  the  "daily  work"  was 
up  to  date.  This  condition  is  due  in  no  small  degree  to  the  personal 
attention  given  the  routine  of  the  office  by  the  treasurer. 

The  provision  that  no  money  be  paid  into  the  treasury  except  upon 
an  order  of  the  auditor  establishes  a  good  control  over  revenue  and 
cash  receipts.  The  entire  procedure  and  records,  as  outlined  and  ex- 
plained, appear  to  afford  complete  control  and  record  of  the  transactions 
of  the  office. 

The  state  is  to  be  complimented  upon  the  high  rates  of  interest  it 
receives  upon  it  several  deposit  accounts.  Rates  are  obtained  by  com- 
petitive bids,  and  interest  is  collected  quarterly  on  daily  average  bal- 
ances. 

As  indicated  by  the  treasurer,  larger  and  more  secure  vault  accom- 
modations should  be  furnished  this  office  for  the  safe  keeping  of  the 

144 


ON   ADMINISTRATIVE   REORGANIZATION  145 

securities  of  the  several  trust  funds  placed  in  its  care,  as  depository 
bonds,  Miami  Conservancy  District  funds.  Industrial  Commission  se- 
curities, trust  and  savings  bank  deposits,  insurance  securities,  etc. 

The  records  of  these  trusts  are  comprehensive  and  the  procedure 
incidental  to  the  filing  and  exchange  of  securities  and  clipping  of 
coupons,  and  records  of  such  steps,  are  adequate.  The  present  prac- 
tice of  prebilling  excise  taxes  and  the  procedure  for  the  control  of  the 
collections  in  this  office  and  the  office  of  auditor  of  state  appear  to  be 
commendable. 

The  cashing  of  the  auditor's  warrants  by  the  treasurer's  check  is 
an  acceptable  procedure.  Should  the  proposed  reorganization  of  the 
state  government  become  effective,  it  may  prove  advisable  to  simplify 
this  procedure  by  eliminating  the  separate  warrant. 

As  is  indicated  in  the  auditor's  annual  report  for  1918,  a  study 
should  be  made  of  positions  in  Jhe  state  service  requiring  bonds,  so 
that  adequate  surety  bonds  may  be  had  for  all  such  employees  of  this 
office,  the  cost  of  which  should  be  paid  by  the  state. 

The  records  of  cash  balances,  interest  earnings  and  distribution  of 
income  and  disbursements,  indicate  clearly  the  transactions  of  the  office. 
The  detailed  analysis  of  income  and  disbursements  does  not  appear  to 
be  a  necessary  duty  of  the  office. 

The  annual  report  of  the  treasurer  should  contain  only  such  facts 
and  figures  as  are  informative  of  the  trusts  placed  in  his  care. 

Because  of  the  volume  and  nature  of  the  securities  deposited  with 
the  state  treasurer,  it  is  suggested  that  consideration  be  given  to  the 
possibility  of  filing  a  duplicate  copy  of  the  records  of  these  securities 
in  a  safe  place  in  some  other  building  in  the  city  so  that  in  case  of  loss 
a  duplicate  record  of  these  trusts  would  be  available. 

It  is  believed  that  it  would  be  a  sound  and  commendable  policy 
for  the  treasurer  to  establish  an  official  record,  annually,  of  the  trusts 
held  by  him  for  the  state  by  filing  with  the  secretary  of  state  a  com- 
plete statement  of  the  nature  and  value  of  all  such  trusts. 


TAX  COMMISSION 

By  DON  C.  SOWERS 


SOURCES  OF    INFORMATION 

Conferences  with  two  of  the  tax  commissioners,  the  third  member 
having  resigned ;  with  the  secretary  of  the  commission  and  heads  of  the 
divisions;  study  of  office  methods  employed  and  forms  used;  and  study 
of  laws  and  annual  reports. 

PRESENT  ORGANIZATION 

The  tax  commission  was  created  in  1910.  It  consists  of  three  mem- 
bers appointed  by  the  governor  for  a  term  of  six  years.  The  members 
receive  a  salary  of  $4,000  each.  The  principal  duties  of  the  commission 
are  the  following : 

1 .  Supervision  over  local  tax  officials  in  the  assessment  of  real  and 
personal  property. 

2.  Assessment  for  taxation  of  all  public  utilities  and  of  certain 
taxes  on  domestic  and  foreign  corporations. 

3.  Supervision  over  the  inheritance  tax. 

For  performing  these  duties  four  more  or  less  well  defined  divisions 
have  been  created  as  follows: 

Division  of  .supervision  of  local  officials. 
Division  of  public  utilities  assessment. 
Division  of  domestic  and  foreign  corporations. 
Division  of  inheritance  tax. 

The  members  of  the  tax  commission  exercise  supervision  over  these 
divisions  in  the  following  manner ;  one  member  devotes  practically  all 
of  his  time  to  the  supervision  of  local  officials;  another  supervises  the 
work  of  public  utilities  assessment  and  taxation  of  domestic  and  foreign 
corporations  and  the  third  member  with  the  assistance  of  stenographers 
handles  all  the  business  connected  with  the  inheritance  tax.  Each  mem- 
ber does  a  large  amount  of  detailed  work  in  connection  with  his  depart- 
ment. The  result  is  that  each  member  becomes  engrossed  in  the  detailed 
matters  connected  with  the  operation  of  his  particular  department  and  de- 
votes little  time  or  thought  to  the  work  of  the  other  divisions  or  the 
work  of  the  commission  as  a  whole.  Matters  requiring  the  attention  of 
the  sommission  are  discussed  and  decided,  for  the  most  part,  in  informal 
conferences  between  commissioners. 

146 


-    ON   ADMINISTRATIVE  REORGANIZATION  147 

The  members  of  the  commission  are  deserving  of  commendation  for 
their  zeal  and  industry  in  performing  the  detail  work  of  the  commission 
but  the  economy  of  having  them  perform  such  duties  is  questionable  and 
the  efficiency  of  this  commission  form  of  organization  is  at  least  debate- 
able.  Better  results  would  probably  be  obtained  by  placing  all  the  work 
of  the  commission  under  one  administrative  officer  selected  for  his  abilitv 
and  experience  in  appraisal  and  taxation  matters  and  then  permit  him  to 
divide  the  work  into  suitable  departments  with  competent  persons  placed 
in  charge  of  each  bureau. 

SUPERVISION  OVER  LOCAL  TAXING  OFFICIALS 

The  duties  of  the  tax  commission  with  respect  to  the  assessment  of 
real  property  are  as  follows :  it  has  power  to  order  the  initial  assessment 
or  a  re-assessment  of  real  estate  in  any  taxing  district  or  in  an  entire 
county  where  this  procedure  is  found  necessary,  and  it  hears  appeals 
from  decisions  of  county  boards  or  revision  in  cases  where  owners  of 
property  are  not  satisfied  with  re-assessments.  -With  respect  to  the  as- 
sessment of  personal  property  it  prescribes  for  county  auditors  the  blanks 
used  by  individuals  in  listing  personal  property  and  prescribes  other  forms 
used  in  the  assesment  and  collection  of  taxes ;  it  receives  and  checks  the 
tax  rates  as  determined  by  the  county  budget  commission;  it  issues  in- 
structions to  county  auditors  and  boards  of  revision  and  assessors  and 
gives  information  and  advice  to  local  officials  with,  respect  to  the  opera- 
tion of  the  tax  laws.  It  is  supposed  to  equalize  tax  valuations  in  the 
various  counties  and  to  determine  whether  or  not  the  law  requiring  valua- 
tion at  full  market  value  is  complied  with.  The  work  done  in  thi^  regard 
amounts  to  little  more  than  a  compilation  of  the  tax  valuations  in  the 
various  counties  as  few  adjustments  are  made. 

HISTORICAL. 

The  first  tax  machinery  in  the  state  was  the  board  of  equalization 
and  assessment.  This  board  consisted  of  the  state  auditor,  ex-officio 
member,  and  one  member  from  each  state  senatorial  district.  The  first 
board  contained  fourteen  members  but  by  1841  there  were  37  members. 
In  1900  the  number  had  fallen  to  33  due  to  a  rearrangement  of  districts. 
Re- valuations  were  made  upon  the  order  of  the  legislature  in  1835,  1841, 
1846,  1853,  1S60  and  decennially  thereafter  to  1910  when  the  period  was 
shortened  to  four  years.  Equalization  under  this  type  of  organization 
resulted  in  decreasing  valuations.  The  politicians  on  the  board  sought  to 
protect  the  interests  of  their  constituents  by  reducing  tax  values.  This 
was  carried  to  such  an  extent  by  means  of  flat  sum  reductions  or  per- 
centage reductions  that  in  1859  the  legislature  forbade  the  reduction  of 
the  aggregate  by  more  than  ten  million  dollars.  Since  1910  no  general 
re-appraisal  of  real  estate  has  been  made  due  to  the  frequent  changes  in 


148  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

the  tax  administrative  system.  In  19 13  the  Warncs  law  placed  the  as- 
sessment of  real  estate  in  the  hands  of  centrally  appointed  county  asses- 
sors to  be  known  as  deputy  tax  commissioners.  In  191 5  the  law  was 
changed  to  make  the  county  auditor  the  county  assessor  ex-officio  with 
general  authority  over  the  assessment  of  real  and  personal  property.  As 
the  law  now  stands  the  county  auditor  is  in  full  charge  of  the  assessment 
of  real  estate  and  the  assessment  of  personal  property  is  done  by  self 
assessment  of  the  indvidual  with  provision  for  assessing  those  who  fail 
to  list  by  assessors. 

The  resuhs  of  the  efforts  of  the  tax  commission  in  its  supervision 
of  the  local  assessments  are  negligible.  The  state  and  all  its  local  sub- 
divisions are  in  dire  financial  straits  and  yet  there  has  been  no  general 
assessment  of  real  estate  since  1910.  The  commission  today  has  no 
machinery  for  checking  up  on  the  assessment  of  real  estate  made  by 
county  officials  to  see  if  property  is  being  assessed  at  its  true  value  and  it 
has  accumulated  little  information  on  this  subject  from  year  to  year 
which  might  be  used  as  a  means  of  compelling  compliance  with  the  law. 
In  the  absence  of  this  basic  information  the  equalization  of  the  assess- 
ment as  between  counties  has  had  to  be  performed  in  a  perfunctory  man- 
ner. While  the  whole  state  has  been  disturbed  and  exercised  over  the 
taxation  problem,  the  tax  commission  has  come  forth  with  no  construc- 
tive program  and  it  has  available  but  few  facts  which  would  throw  light 
upon  the  problem.  As  good  or  better  results  might  be  expected  from  a 
single  administrative  official. 

The  tax  commission  has  jurisdiction  on  appeal  from  local  taxing 
authorities.  Formerly  two  or  more  members  went  to  the  counties  heard 
the  testimony  and  rendered  a  decision.  More  recently  the  practice  has 
been  for  one  member  to  go  and  hear  the  testimony,  secure  the  facts  and 
on  returning  to  Columbus,  consult  with  the  other  members  and  render  a 
decision.  In  some  cases  the  hearings  were  heard  in  Columbus.  Tb.c 
number  of  appeal  cases  which  are  brought  before  the  commission  in  a 
year  are  small  and  this  constitutes  a  relatively  unimportant  part  of  the 
commission's  activities. 


DETERMIN.\TI0N  OF  THE  VALUE  OF  PUBLIC  UTILITIES 

Public  Utilities  corporations  submit  detailed  report  on  standard  forms 
to  the  tax  commission  shoAving  the  value  of  their  properties.  These  are 
checked  and  analyzed  by  the  auditor  and  his  staff  and  the  value  deter- 
mined for  taxation  purposes.  Corporations  are  notified  as  to  the  value 
tentatively  fixed  and  hearings  are  scheduled  for  the  purpose  of  giving 
them  rm  opportunity  to  be  heard.  After  these  hearings  the  final  value 
is  determined.  The  decision  of  the  commission  in  each  case  must  rest 
upon  the  basis  of  facts  as  determined  by  its  auditor  and  staff.  In  reaching 
a  sound  conclusion  based  upon  facts,  the  judgment  nf  one  man  skilled 


ON   ADMINISTRATIVE  REORGANIZATION  149 

and  experienced  in  matters  of  valuation  and  taxation  is  as  apt  to  be  as 
trustworthy  as  the  judgment  cf  a  group  of  laymen  who  might  be  ap- 
pointed to  such  position  for  divers  reasons.  The  corporations  have  re- 
course to  the  courts  when  they  deem  the  decision  unfair,  which  is  ample 
protection  for  them. 

DETERMINATION  OF  GROSS  EARNINGS  AND  AMOUNT  OF  CAPITAL  STOCK  OUT- 
STANDING OF  DOMESTIC  AND  FOREIGN   CORPORATIONS 

Reports  submitted  by  corporations  of  their  gross  earnings  and 
capital  stock  are  the  basis  for  the  work  of  the  tax  commission  in  per- 
forming this  activity.  The  problem  is  to  determine  by  every  means  avail- 
able whether  the  statements  made  are  accurate  and  this  is  purely  a  ques- 
tion of  fact  and  not  a  question  of  policy. 

SUPERVISION    OF    THE    INHERITANCE    TAX 

The  tax  commission  performs  no  judicial  function  with  respect  to 
the  inheritance  tax.  The  power  to  decide  is  placed  with  the  county  judges. 
The  duties  of  the  tax  commission  are  purely  supervisory  and  hence  of  an 
administrative  nature. 

The  work  of  the  tax  commission  bears  a  close  relationship  to  the 
work  of  the  department  of  finance.  The  initial  step  in  the  process  of 
securing  state  revenues  is  the  determination  of  the  valuation  of  property 
for  taxation  purposes.  This  is  the  chief  function  now  performed  by  the 
lax  commission ;  it  supervises  the  assessed  value  of  real  estate  and  per- 
sonal property  and  fixes  the  valuation  placed  upon  public  utilities  and 
establishes  the  tax  base  for  domestic  and  foreign  corporations.  It  seems 
logical  that  all  the  activities  which  have  to  do  with  assessing,  levying,  col- 
lecting and  disbursing  state  funds  should  be  placed  in  one  department. 

It  is  therefore  recommended  that  the  functions  of  the  tax  commis- 
sion be  transferred  to  the  bureau'  of  income  and  taxation  in  the  depart- 
ment of  finance.  The  work  of  this  bureau  would  be  performed  under  the 
supervision  of  a  single  individual  appointed  by  the  director  of  finance. 
This  bureau  could  be  expanded  by  the  creation  of  another  division  to 
handle  the  additional  work  which  w-ill  arise  in  connection  with  the  lev>nng 
and  collecting  of  a  state  income  tax  and  in  this  way  all  financial  and 
fiscal  affairs,  of  the  state  would  be  consolidated  in  a  single  department. 
Such  a  consolidation  would  be  in  the  interest  of  efficiency  and  economy. 

For  the  purpose  of  equalizing  assessments  and  performing  other 
quasi-judicial  duties  or  functions  now  performed  by  the  tax  commission 
a  board  of  equalization  would  be  created  consisting  of  the  director  of 
finance,  the  attorney  general  and  the  director  of  trade  and  commerce. 


STATE  PRINTING 
(Present  Organization) 


£L£CTOE&.I£ 


SECRiSTABY  OP 
STATE 


AUDITOR 


SUPKHVISOR  OP 
PUBLIC  PRINTING 


ATTORNEY 
GENERAL 


COMMISSIONERS  OP 
PUBLIC  PRINTING 


STATE  BINDERY 


STATE  PRINTING 

By  GAYLORD  C.  CUMMIN 


The  printing  for  the  various  state  departments  must  by  statute  be 
secured  through  the  supervisor  of  public  printing  with  the  consent  and 
under  the  instructions  of  the  commissioners  of  pubhc  printing,  except 
where  the  publication  is  specifically  authorized  and  provided  for  by  statute 
in  which  case  the  commissioners  of  public  printing  have  no  authority. 

COMMISSIONERS   OF   PUBLIC   PRINTING. 

Po7vers  and  Duties.  Sec.  745  General  Code,  provides  that  "By  virtue 
of  their  offices  the  secretary  of  state,  the  auditor  of  state  and  attorney 
general  shall  be  commissioners  of  public  printing. 

They  shall  have  the  power  to  determine,  except  as  otherwise  spe- 
cifically provided  by  law,  the  number  of  volumes  into  which  each  publica- 
tion shall  be  divided,  the  manner  of  binding,  quality  of  paper  and  kind  of 
type  to  be  used  in  all  reports,  publications,  bulletins  or  pamphlets  pub- 
lished at  the  public  expense." 

CLASSES  OF  PRINTING. 

Sec.  754  General  Code  provides  that  all  printing  be  divided  into 
seven  classes : 

1.  Legislative  printing  in  bill  form. 

2.  Legislative  journals  and  documents  forming  part  thereof. 

3.  Reports  and  documents  in  pamphlet  form. 

4.  General  and  local  laws  and  joint  resolutions. 

5.  Blank  circulars,  etc.,  not  including  those  in  pamphlet  form. 

6.  The  bulletins  of  the  agricultural  commission, 

7.  Reports,  etc.,  required  to  be  bound  not  contained  in  the  (2)  (3) 
and  (4)  classes. 

Contracts.  "Each  class  shall  be  let  in  separate  contracts."  "The 
printing  for  the  (7)  rlass  may  be  let  in  one  or  more  contracts  as  the  com- 
missioners of  public  printing  in  their  discretion  may  require." 

Biennial  Lettings.  Sec,  755  General  Code  provides  that  the  con- 
tracts must  be  for  two  years,  and  provides  the  procedure  under  which  the 
commissioners  of  public  printing  are  to  advertise  and  let  same. 

Binding.  Sec,  779  General  Code  provides  that  the  commissioners 
of  public  printing  are  to  provide  for  necessary  binding  according  to  their 
discretion. 

151 


[52  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 


SUPERVISOR  OF  PRINTING. 

Appointment  and  Qualifications.  Sec.  746  General  Code  provides 
that  "The  governor  with  the  advice  and  consent  of  the  Senate  shall  ap- 
point a  supervisor  of  public  printing  who  must  be  a  practical  printer  and 
whose  term  of  office  shall  be  two  years." 

Powers  and  Duties.  Sec.  748  General  Code  provides  that  *  *  * 
"the  supervisor  of  public  printing  shall  examine  and  correct  all  proof 
sheets  of  the  printing  for  the  state,  see  that  the  work  is  executed  in  ac- 
cordance with  the  law  and  when  necessary  prepare  indexes  for  public 
documents.  The  printing  for  the  opinions  of  the  attorney  general,  'Ohio 
General  Statistics'  and  all  publications  approved  by  the  commissioners  of 
public  printing  shall  be  ordered  through  him,  and  he  shall  see  that  the 
number  of  copies  ordered  is  received  from  the  printer  and  delivered  to 
the  proper  department." 

Sec.  749  General  Code  provides  that  "The  supervisor  of  public  print- 
ing shall  audit  the  accounts  for  printing  and  binding  and  keep  a  record 
of  the  cost  thereof,  the  amount  of  paper  used,  and  the  expense  of  each 
document." 

STATE  BINDERY. 

Sec.  750  General  Code  provides  that  "The  supervisor  of  public  print- 
ing shall  have  charge  of  the  book-binding  establishment  at  the  school  for 
the  deaf,  he  shall  provide  the  necessary  materials,  implements,  machinery 
and  fixtures  therefor;  he  shall  have  supervision  and  control  thereof  and 
exclusive  management  of  its  practical  operation." 

Paper  furnished  by  the  State.  Sec.  764  General  Code  provides  that 
"The  paper  for  such  printing  shall  be  furnished  by  the  state  *  *  * 
and 

Sec.  752  General  Code  provides  that  the  secretary  of  state  shall  de- 
liver the  paper  to  the  printer. 

The  legal  fact  base  was  supplemented  by  interviews  with  the  past 
and  present  supervisors  of  public  printing,  and  department  heads,  by 
questionnaires  sent  to  departments,  by  a  study  of  stationery,  forms, 
pam^phlets,  bulletins,  reports,  etc.,  issued  by  the  state. 

The  appropriations  for  printing,  paper  and  binding  total  $303,548 
annually  on  the  face  of  the  appropriation  bill  for  the  present  biennium, 
but  this  does  not  cover  all  the  printing  that  may  be"  done  under  that  bill. 
The  printing  for  state  universities  is  not  under  the  control  of  the  com- 
missioners of  public  printing  nor  is  it  ordered  through  the  supervisor  of 
printing.  The  cost  of  printing  the  lists  of  automobile  registration  num- 
bers by  the  division  of  automobiles  is  not  included,  and  there  are  other 
minor  exceptions. 


ON  ADMINISTRATIVE  REORGANIZATION  153 

RECOMMENDATIONS. 

1.  That  the  commissioners  of  public  printing  be  abolished. 

The  commissioners  of  public  printing  are  an  ex-ofificio  commission 
which  common  experience  shows  does  not  function,  and  Ohio's  experience 
confirms  this  judgment.  The  officials  concerned  have  troubles  of  their 
own,  and  have  not  the  time  or  energy  to  pass  upon  the  large  amount  of 
detail  with  which  they  are  charged  on  this  commission.  There  is  also  a 
constant  tendency  to  be  exceedingly  liberal  in  passing  upon  what  should 
be  printed  by  the  departments  represented  on  the  commission,  and  be- 
sides the  commission  is  open  to  constant  pressure  from  the  various  de- 
partments for  authorization  for  printing  which  may  easily  be  yielded  to 
for  reasons  of  "courtesy"  or  politics. 

Furthermore  the  mere  fact  that  so  much  supervisory  power  is  placed 
in  the  hands  of  the  commission  leaves  the  only  full-time  man  concerned 
with  a  feeling  that  he  has  no  authority  and  discourages  him  from  action 
looking  toward  savings.  The  appropriation  control  suggested  in  recom- 
mendation No.  8  will  be  much  more  effective  in  curbing  extravagance  and 
ill-advised  publications  than  the  commission  could  possibly  be. 

2.  That  the  office  of  supervisor  of  public  printing  be  abolished 
and  all  printing  purchased  through  the  central  purchasing  agent. 

The  purchase  of  printing  is  a  purchasing  function  and  should  be 
handled  in  the  same  fashion  as  are  other  commodities  and  services.  There 
is  no  need  for  a  separate  organization  for  such  a  purpose.  (See  C.  E. 
Rightor's  report  on  Department  of  Finance.) 

3.  That  the  present  law  governing  the  purchase  of  printing 
service  be  amended  in  the  following  respects: 

(a)  That  the  classification  of  printing  be  abolished. 

(b)  That  contracts  be  let  for  single  jobs  or  groups  of  jobs  at  the 
discretion  of  the  purchasing  agent. 

(c)  That  biennial  contracts  be  aJlowed  but  be  no  longer  manda- 
tory. 

(d)  That  the  procedure  necessary  for  letting  contracts  be  short- 
ened and  simplified. 

The  contract  provisions  that  each  class  of  printing  with  the  exception 
of  the  seventh  class  must  be  let  as  a  whole  and  for  a  period  of  two  years 
results  in  neither  the  best  prices  nor  the  best  service.  It  is  quite  probable 
that  fairly  low  prices  have  been  had  under  this  law,  and  tying  up  a  long 
term  contract  at  times  may  be  very  advantageous,  but  at  other  times  may 
may  be  equally  disadvantageous.  A  prospective  bidder  figuring  on  such 
a  contract  tries  to  predict  what  his  costs  are  going  to  be  during  the  two 
year  period,  adds  a  profit,  quite  probably  less  than  he  usually  adds,  and 
a  certain  amount  for  insurance  to  cover  the  chance  for  error  in  his  cost 
estimate.     When  industrial  conditions   and  prices   are   abnormal,   as   at 


154  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

present,  he  must  bid  high  to  discount  possible  rises  in  cost ;  if  costs  are 
lowering  he  discounts  that  perhaps  to  some  extent  in  his  bid.  Any  price 
bid  now  for  a  two  year  period  would  of  necessity  contain  a  large  margin 
for  possible  increase  in  cost. 

Furthermore  the  fact  that  a  bidder  for  any  class  must  either  drop 
some  of  his  commercial  business  or  especially  equip  to  handle  this  large 
volume  of  state  busine'ss  gives  him  a  great  advantage  over  other  con- 
tractors after  he  has  once  secured  a  contract  and  is  properly  equipped. 
He  can  bid  slightly  lower  than  others  and  still  make  a  much  greater  mar- 
gin of  profit.  When  the  contract  is  once  secured  by  a  contractor  it  is 
nearly  impossible  for  anyone  to  get  it  away  from  him  in  the  future. 

Every  print  shop  has  certain  times  when  its  regular  business  is  slack 
and  at  such  times  it  is  willing  to  take  printing  at  practically  cost  in  order 
to  operate  to  capacity.  By  letting  printing  contracts  by  the  job  it  should 
be  possible  to  have  a  large  proportion  of  state  printing  done  during  these 
slack  periods  which  will  result  in  average  lower  prices  to  say  nothing  of 
greatly  improved  service.  It  is  recognized  that  certain  kinds  of  printing 
must,  as  a  practical  matter,  be  let  as  a  whole  but  this  should  be  left  to  the 
discretion  of  the  purchasing  agent  and  he  held  responsible  for  results. 

Perhaps  the  most  serious  feature  of  the  present  contractual  pro- 
cedure is  its  effect  upon  service.  The  delays  on  certain  kinds  of  printing 
are  out  of  all  reason.  Exact  data  as  to  printer's  delays  is  difificult  to  get 
on  account  of  delays  in  the  bindery  which  will  be  later  discussed,  and 
lack  of  proper  reporting  system  by  which  the  supervisor  of  public  print- 
ing is  furnished  with  the  necessary  data.  There  is  no  question,  however, 
that  the  delays  are  serious.  Annual  reports  from  time  of  furnishing 
copy  to  printer  to  delivery  take  periods  of  i8  months.  i2i^+months,  6 
months,  5  +  months,  43^  -f-  months,  etc.  the  plus  sign  indicating  that 
such  documents  are  still  in  the  hands  of  the  printer,  or  printer  and  binder. 
Bulletins  and  pamphlets  take  from  210  days  to  151  days,  Q2  days,  70  days, 
59  days  on  down.  The  average  for  one  department  with  bulletins  12 
pages  and  under  being  40  days.  Stationery,  forms,  etc.,  take  from  107 
days,  60  days,  30  days,  20  days  on  down,  the  average  in  one  department 
on  all  orders  for  a  year  being  27  days.  The  session  laws  for  1919  have 
been  in  the  hands  of  the  printer  since  June  and  were  delivered  in  Novem- 
ber to  the  state  bindery.  This  delay  seriously  inconveniences  judges, 
lawyers  and  officials  charged  with  law  enforcement  and  the  public  gen- 
erally. 

One  especially  striking  case  is  the  list  of  automobile  registration 
numbers  which  are  printed  for  the  information  of  police  departments, 
sheriffs,  etc.,  and  which  should  be  issued  promptly  to  be  of  service  or 
use.  Although  over  500,000  numbers  have  been  issued  in  the  present 
year  the  last  number  in  lists  published  to  November  ist  was  312,000. 
This  is  a  very  expensive  jniblication  consisting  of  an  edition  of  200  in 
24  volumes  at  a  cost  of  approximately  $900  per  volume  or  a  total  of 


6n  administrative  reorganization  155 

$21,600,  and  nearly  half  will  be  absolutely  useless  when  published.  Com- 
plaint is  also  made  concerning  the  delays  in  printing  bills  and  resolutions 
of  the  legislature. 

Annual  reports  delayed  from  4  to  18  months  are  of  little  use,  and 
such  delays  as  occur  in  other  kinds  of  printing  are  certainly  an  intense 
annoyance  to  the  departments  concerned. 

This  delay  in  printing  arises  largely  out  of  the  letting  of  contracts 
for  all  the  printing  in  one  or  more  classes  to  the  same  firm.  The  con- 
tractor, although  he  may  be  already  overloaded  with  state  printing  is 
given  additional  work  as  it  may  be  ordered  by  state  departments,  and  this 
simply  means  that  work  deemed  of  lesser  importance  must  wait.  It  is 
quite  possible  that  quicker  action  could  be  secured  by  bringing  pressure 
to  bear  upon  the  printing  contractors,  but  this  will  not  be  nearly  so  ef- 
fective as  the  change  in  the  manner  of  handling  contracts  here  proposed. 

4.  That  it  be  made  permissive  and  not  mandatory  for  the  state 
to  furnish  the  paper  to  the  printing  contractors. 

Under  certain  conditions  it  iitay  be  advantageous  to  have  the  state 
buy  and  furnish  the  paper  for  printing,  but  under  other  conditions  it  may 
be  equally  disadvantageous.  When  the  cost  of  carrying  a  paper  stock  of 
an  average  value  of  $30,000,  the  cost  of  space  for  storage,  cost  of  store- 
room operation,  and  rehandling  of  paper  stock,  is  taken  into  consideration 
the  economy  of  the  present  method  is  open  to  grave  question  especially 
under  average  market  conditions.  The  power  to  buy  and  furnish  such 
paper  is  valuable  but  it  should  not  be  mandatory. 

5.  That  if  paper  is  purchased  by  the  state,  it  shall  be  upon 
standard  specifications  instead  of  by  sample. 

The  wisdom  of  this  step  is  evident  to  those  with  a  knowledge  of  the 
paper  business.  The  federal  government  has  worked  out  such  specifica- 
tions in  much  detail  and  they  are  available  for  the  asking. 

6.  That  a  study  be  made  of  what  minimum  grade  of  paper  will 
be  satisfactory  for  certain  purposes,  and  departments  be  compelled 
to  adhere  to  the  standards  decided  upon. 

Numerous  instances  could  be  cited  in  support  of  this  recommenda- 
tion but  a  few  will  suffice  to  make  the  point  clear.  Most  of  the  stationery 
for  state  departments  is  on  24  lb.  stock.  Twenty  pound  stock  is  con- 
sidered heavy  enough  for  business  stationery  and  this  small  change  would 
save  the  state  on  this  item  alone  nearly  $800  per  year.  Instances  of  bid- 
ding blanks  on  expensive  bond  paper,  forms  on  ledger  stock,  etc.,  are 
numerous.  This  could  easily  be  corrected  by  the  exercise  of  a  little  care 
and  would  result  in  a  saving  of  thousands  of  dollars  annually  with  no 
damage  to  any  one.  The  use  of  standard  stationery  for  inter-depart- 
mental correspondence  should  be  stopped  and  a  cheaper  grade  used  for 
that  purpose. 


156  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

7.  That  standard  specifications  be  formulated  by  the  purchasing 
agent  for  different  kinds  of  printing  and  all  work  be  performed 
under  such  specification. 

This  is  a  simple  thing  to  do  and  will  greatly  shorten  and  simplify  the 
procedure  in  letting  contracts. 

8.  That  appropriations  for  printing,  paper  included,  and  binding 
be  made  to  the  several  departments  as  are  appropriations  for  other 
services,  and  requests  for  such  appropriations  be  accompanied  by 
detailed  estimates  to  prove  necessity. 

With  but  few  exceptions  appropriations  for  printing  service  are  not 
made  directly  to  the  departments  as  for  all  other  services  nor  is  the 
amount  appropriated  based  upon  departmental  estimates  Lump  sum 
appropriations  are  made  for  printing  to  the  supervisor  of  public  printing, 
$23,968.83  for  6,694,400  separate  pieces  or  more  than  one  for  each  man, 
for  paper  to  the  commissioners  of  public  printing  and  in  a  few  cases 
directly  to  departments.  The  appropriation  for  binding  is  simply  an 
appropriation  for  operating  the  state  bindery.  This  gives  a  "pot"  con- 
taining $249,518  from  which  all  departments  can  draw  for  printing  and 
binding  providing  they  have  the  permission  of  the  commissioners  of  pub- 
lic printing.  This  is  an  exceedingly  vicious  condition  as  there  is  every 
reason  why  each  department  should  try  to  get  as  much  of  this  money 
as  possible,  as  it  does  not  appear  in  their  reports  as  expenditures  of 
their  departments,  and  they  are  not  answerable  to  the  appropriating 
powers  for  such  expenditures. 

The  legislature  is  not  given  the  necessary  information  under  this 
scheme  to  be  able  to  judge  of  the  adequacy  or  .inadequacy  of  the  ap- 
propriation for  such  purposes.  For  instance,  the  total  expenditures  for 
"flat  work"  that  is,  stationery,  forms,  small  circulars,  etc.,  during  the  last 
fiscal  year  was  $93,397.66.  The  legislature  should  certainly  be  allowed 
to  argue  the  question  as  to  whether  it  is  necessary  for  the  board  of  agri- 
culture to  spend  $11,754.53  for  flat  work  in  one  year,  the  division  of 
vital  statistics  $6,723.49  or  more  than  twice  the  expenditure  of  $3091.44 
by  the  state  department  of  health.  The  industrial  commission  spent 
$23,968.83  for  6,694,400  separate  pieces  or  more  than  one  for  each  man, 
woman  and  child  in  the  state.  The  inspector  of  building  and  loan  associ- 
ations spends  for  this  class  of  work  $191.08,  the  inspector  of  banks  and 
banking  $1624.96.  Does  the  83rd  General  Assembly  realize  that  it  has 
spent  $43,874.83  on  printing  and  paper  exclusive  of  journals,  copies  of 
acts  and  the  session  law?  It  is  not  claimed  here  that  these  amounts  are 
not  necessary,  but  the  appropriating  officials  should  be  informed  as  to 
their  necessity.  Would  the  governor  have  recommended  or  the  legisla- 
ture granted  such  appropriations  as  al)ovc  had  they  been  given  the  op- 
portunity r 

The  same  is  true  of  other  classes  of  printing  of  which  a  few  in- 
stances will  be  cited.     The  last  annual  report  of  inspector  of  building 


ON   ADMINISTRATIVE  REORGANIZATION  157 

and  loan  associations  cost  $3,281.81,  banks  and  banking  $1,931.89,  auditor 
$910.87,  secretary  of  state  $3,481.82,  public  instruction  $1,288.03,  Ohio^ 
general  statistics  $8,750.20,  all  these  figures  being  exclusive  of  binding. 
As  there  is  no  cost  system  in  the  state  bindery  and  as  all  binding  for  the 
state  is  done  there  it  is  impossible  to  give  such  cost  for  these  reports. 
The  responsible  officials  should  look  over  these  reports  and  decide 
whether  they  are  worth  the  money.  With  this  change  some  incentive  to 
economy  will  be  given  departments,  and  more  attention  paid  to  the  ne- 
cessity for  expensive  forms,  embossed  stationery,  etc.  As  such  expendi- 
tures will  be  charged  directly  against  the  departments  there  will  be  less 
tendency  to  get  out  reports  for  general  publicity  purposes  which  have  no 
connection  with  the  work  of  the  departments  such  as  "Ohio  Interroga- 
tion Points,"  "Ohio  Live  Stock".  The  instances  cited  being  valuable 
as  reports  but  certainly  not  even  remotely  related  to  the  duties  of  the 
auditor  of  state. 

9.  That  all  reports,  bulletins,  etc.  be  edited  by  am  official  editor 
in  the  office  of  the  governor  appointed  to  both  criticise  and  suggest. 

This  recommendation  brings  up  the  entire  matter  of  state  reports. 
Although  some  progress  has  been  made  in  cutting  down  the  size  and 
numbers  of  state  reports  there  is  still  a  great  amount  of  labor,  paper  and 
ink  wasted  on  voluminous  reports  that  convey  but  little  information  and 
are  of  little  interest  or  value  to  the  governor,  the  legislature  or  the 
public  at  large.  This  is  particularly  regrettable  because  of  the  vast 
amount  of  interesting  and  valuable  work  being  done  by  state  depart- 
ments which  the  public  should  know  about  and  in  which  they  would  be 
interested  but  which  is  not  printed.  Any  officer  who  is  preparing  a  report 
should  ask  himself  two  questions,  namely :  Have  I  anything  to  tell  ? 
and  Can  I  tell  it  so  that  people  will  read  it  ?  Unless  these  questions  can 
be  answered  satisfactorily  he  had  better  not  write  a  report.  The  reports 
of  the  auditor  of  state  would  indicate  that  he  satisfactorily  answers 
these  questions  as  most  of  his  reports  are  interesting  and  readable.  The 
tendency  to  print  pages  of  meaningless  statistics  for  the  apparent  reason 
that  they  have  always  been  published  should  be  curtailed. 

The  consolidated  report  of  the  state  "The  Ohio  General  Statistics" 
needs  a  very  thorough  editing.  The  information  of  general  public 
interest  contained  therein  could  be  condensed  into  a  small  fraction  of  the 
space  now  occupied  and  to  be  of  value  the  information  should  be  in  a 
form  more  easily  and  pleasantly  digested  by  the  average  citizen.  Graph- 
ical diagrams  to  convey  statistical  facts  are  far  more  illuminating  to  the 
lay  mind  than  are  tables  of  figures.  A  little  careful  study  with  a  view 
to  having  this  report  convey  to  the  public  a  picture  of  the  results  of  an 
administration's  stewardship  would  turn  a  book  which  is  a  burden  on  the 
hands  of  those  charged  with  its  distribution  into  a  medium  of  real  value. 
One  quarter  of  the  money  spent  on  publication,  expended  upon  a  report 


15^  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

of  the  character  suggested  above,  would  be  of  much  more  value  to  the 
state.  As  a  means  of  discouraging  intelligent  interest  in  state  government 
"The  Ohio  General  Statistics"  is  a  masterpiece.     (Edition  12,000  copies.) 

There  is  still  considerable  duplication  in  matter  reported  in  various 
state  reports  and  a  large  saving  can  be  made  if  intelligent  study  is  con- 
centrated on  the  problem. 

This  recommendation  contemplates  the  appointment  of  an  editor 
who  knows  a  news  story  when  he  sees  it,  and  he  should  be  charged  with 
allowing  no  unintelligible  report  to  escape  to  the  public. 

10.  That  an  up-to-date  multigraph  and  mimeograph  shop  be 
installed  in  connection  with  the  printing  of  stationery,  forms,  legis- 
lative bills,  automobile  registration  lists,  and  psunphlets,  and  lists  in 
small  editions  within  the  limit  of  the  equipment. 

A  large  amount  of  printed  matter  needed  by  the  state  is  in  small 
editions  of  less  than  1000  copies.  No  printing  set-up  can  be  economical 
for  such  purposes.  Legislative  bills  are  issued  in  editions  of  600  copies, 
the  "enrolling  copies"  in  editions  of  six.  The  six  "enrolling  copies"  of 
the  acts  passed  by  the  present  General  Assembly  up  to  their  recess  cost, 
in  round  figures,  $5,000.  This  work  can  be  done  more  cheaply  and  more 
quickly  by  means  of  multigraph  than  it  can  be  printed.  Stationery  and 
many  standard  forms  can  also  be  printed  on  a  multigraph  with  savings 
of  from  40  to  60%.  On  "flat  work"  alone  a  properly  equipped  multi- 
graph  shop  would  save  from  $20,000  to  $30,000  annually  with  equal 
results  and  much  greater  expedition.  The  lists  of  automobile  registra- 
tion numbers  could  be  made  promptly  with  such  equipment  at  a  saving 
of  $12,000  annually.  Such  equipment  would  cost  over  $4,000.  Certain 
lists,  form  letters,  trial  forms,  etc.,  can  be  made  with  great  economy  on 
a  mimeograph  and  the  cost  of  such  equipment  would  be  a  few  hundred 
dollars.  The  state  purchasing  department  of  Wisconsin  made  such 
installation  as  suggested  above  and  reports  a  saving  of  $97,000  the  first 
four  years,  so  it  is  believed  that  the  figures  of  savings  given  above  are 
conservative. 

11.  That  a  system  of  checking  be  installed  so  that  the  purchas- 
ing agent  has  the  necessary  information  to  check  quantities  and  dates 
of  delivery  to  bindery  and  departments. 

There  is  no  such  system  now.  The  supervisor  of  public  printing 
sends  an  order  to  the  printing  contractor.  He  hears  no  more  about  it 
until  the  bill  is  presented  or  a  department  complains  about  delivery.  The 
bindery  is  not  informed  of  the  order  to  the  printer  and  never  knows  what 
is  on  the  way  except  by  accident.  When  delivery  is  made  to  the  bindery 
no  report  of  quantity  or  condition  is  made  to  any  one.  No  report  is 
made  by  a  department  on  final  delivery.  It  is  hard  to  conceive  how 
the  supervisor  of  public  printing  can  intelligently  audit  bills  under  such 
conditions.  One  very  simple  form  would  correct  at  once  this  loose 
method  of  doing  business. 


ON   ADMINISTRATIVE   REORGANIZATION  159 

12.  That  the  state  bindery  be  either  properly  and  decently 
housed  or  else  be  abandoned. 

The  state  bindery  is  housed  in  three  floors  and  a  small  basement  of 
a  building  in  the  rear  of  the  Grand  Theatre  Building  on  State  street  next 
to  the  City  Building,  for  which  the  state  pays  $4,000  per  year.  This 
building  is  entirely  unfitted  for  the  work  to  be  performed,  is  a  fire  trap 
and  insanitary.  Its  structural  features  are  so  bad  that  the  machinery 
has  to  be  placed  where  the  floor  will  hold  it  and  not  where  convenience 
dictates.  The  floors  sag,  the  structural  connections  are  lessons  in  how 
not  to  frame  a  building.  The  toilets  are  filthy,  the  women's  rest  room 
must  be  seen  to  be  appreciated.  A  large  part  of  the  wiring  is  open 
cleat  work,  the  transformers  are  in  a  chamber  at  the  foot  of  the  elevator 
shaft  where  they  will  cause  the  maximum  amount  of  damage  should 
electrical  trouble  occur.  The  only  fire  escape  is  beside  the  elevator  where 
it  stands  the  best  chance  of  being  useless  in  a  fire. 

The  state  of  Ohio  has  passed  many  forward  looking  laws  concern- 
ing the  conditions  under  which  persons  shali  labor,  and  yet  requires 
its  employes  to  work  under  conditions  for  which  its  own  inspectors  would 
severly  censure  a  private  owner. 

Outside  of  these  conditions  it  is  not  possible  to  arrange  the  ma- 
chinery to  do  the  work  of  the  state  efficiently  in  the  present  quarters. 
The  bindery  is  apparently  doing  better  than  might  be  expected  under 
most  discouraging  physical  handicaps.  Serious  delays  now  occur  in 
getting  work  done,  and  if  service  is  desired  this  department  should  be 
housed  in  a  proper  building  and  properly  equipped  for  the  work  with 
which  it  is  charged. 

13.  That  a  cost  system  be  installed  in  the  bindery  and  sufficient 
help  given  to  operate  same. 

The  necessity  for  this  is  obvious. 

14.  That  the  appropriation  for  operation  of  the  bindery  be  made 
in  the  form  of  a  rotary  fund,  that  the  department  be  billed  for  the 
work  done  and  the  fund  reimbursed  in  that  manner. 

The  result  of  the  present  inflexibile  appropriation  is  shown  in  the 
inability  to  give  service.  It  is  perfectly  evident  that  in  a  function  of  this 
/<:ind  the  funds  for  operating  should  depend  upon  the  amount  of  work  to 
be  done.  At  present  the  bindery  is  snowed  under,  a  number  of  depart- 
ments clamoring  for  deliveries,  and  the  bindery  cannot  add  an  employee 
or  work  over  time  in  order  to  give  the  service  desired. 


The  attention  of  the  legislature  is  called  to  the  fact  that  another 
biennial  contract  will  be  let  in  November,  1920,  and  the  suggested 
statutory  changes  herein  recommended  should  therefore  be  made  before 
that  time  so  that  full  advantage  may  be  gained-  therefrom. 


COMMISSIONER  OF  SECURITIES 

By  GAYLORD  C.  CUMMIN 


Sec.  744-14  of  the  General  Code  provides:  "The  commissioner  of 
securities  shall  execute  all  the  laws  enacted  to  regulate  the  sale  of  bonds, 
stocks  and  other  securities  and  of  real  estate  not  located  in  Ohio  and  to 
prevent  fraud  in  such  sales,  heretofore  executed  by  the  superintendent 
of  banks ;  and  shall  also  execute  all  laws  enacted  to  regulate  the  loaning 
of  money  without  security  on  personal  property  *  *  *  heretofore 
executed  by  the  superintendent  of  banks."     *     *     * 

"The  'Blue  Sky'  Law  has  two  important  functions : 

First  —  The  licensing  of  all  individuals,  co-partnerships  or  corpora- 
tions dealing  in  securities  (the  law  defining  securities  as  stock,  stock 
certificates,  bonds,  debentures,  collateral  trust  certificates  or  other  similar 
instruments  evidencing  title  to,  or  interest  in,  property)  or  real  estate 
located  outside  of  Ohio.  To  secure  a  license,  the  applicant  must  be  of 
good  business  repute  and  submit  references  and  other  information  to 
the  commissioner  to  establish  this  fact.  The  department  also  has  au- 
thority at  any  time  to  examine  the  books  and  records  of  any  hcensee  to 
determine  whether  or  not  the  business  is  being  properly  conducted. 

Second  —  Any  securities,  and  real  estate,  located  outside  of  the 
state,  offered  for  sale,  must  be  approved  by  the  commissioner  before 
being  sold  or  even  offered  for  sale  within  the  state.  However,  the  statute 
contains  broad  and  varied  exemptions  as  to  securities,  and  these  exemp- 
tions preclude  any  possibility  of  hampering  stable  commercial  business. 
After  approval,  a  certificate  of  corporate  compliance  is  issued.  To 
obtain  this  Certificate,  very  complete  information  must  be  filed  with 
the  department  by  the  applicant,  including  copy  of  articles  of  incorpora- 
tion certified  by  the  officers  of  the  particular  state  or  province  granting 
same,  rules,  regulations  and  by-laws,  method  of  operation,  financial 
condition,  complete  description  of  all  property,  both  tangible  and  in- 
tangible, salaries  to  be  paid  officers,  amount  of  stock  given  for  promotion, 
organization,  patents,  formulas,  trademarks,  etc.,  and  the  terms  upon 
which  the  stock  is  to  be  sold,  as  well  as  certified  copies  of  all  contracts 
relative  to  carrying  on  the  business."  (Report  of  Commissioner  of 
Securities,  1918) 

DIVISION  OF  CHATTLE  LOANS. 

'Iliis  division  administers  the  "Lloyd  Act"  regulating  cliattle  loans. 
Sec.  6346-1   of  the  General  Code  provides:     "It  shall  be  unlawful 
for  any  person,  firm.  i)artncrship.  association  or  corporation   to  engage 

160 


ON    ADMINISTRATIVE    REORGANIZATION  l6[ 

or  continue  in  the  business  of  making  loans  on  plain,  endorsed,  or 
guaranteed  notes  or  due  bills  or  otherwise,  or  upon  the  mortgage  or 
pledge  of  chattels  or  personal  property  of  any  kind,  or  of  purchasing  or 
making  loans  on  salaries  or  wage  earnings,  or  of  furnishing  guarantee 
or  security  in  connection  with  any  loan  or  purchase  as  aforesaid  at  a 
charge  or  rate  of  interest  in  excess  of  eight  percentum  per  annum  in- 
cluding all  charges  without  first  having  obtained  a  license  so  to  do  from 
the  commissioner  of  securities  and  otherwise  complying  with  the  pro- 
visions of  this  chapter. 

Sec.  6346-4  of  the  General  Code  provides  that  investigation  shall  be 
made  of  business  of  every  licensee  at  least  once  a  year  to  see  whether 
said  licensee  is  complying  with  this  act. 

Sec.  6346-5  of  the  General  Code  fixes  maximum  interest  and  fee 
charges  allowed. 

Interviews  were  had  with  the  commissioner  and  various  employees 
as  well  as  citizens  who  had  had  business  relations  with  the  department 
either  as  complainants  or  petitioners ;  reports  etc.  were  consulted. 

The  department  seems  to  be  making  good  progress  toward  giving 
the  public  protection  and  unquestionably  has  saved  investors  from  con- 
siderable losses.  The  reports  of  inspections  seem  to  be  workman-like 
and  as  thorough  as  could  be  expected  from  the  time  that  the  inspector 
is  able  to  give  to  one  report.  This  department  is  one  of  the  few  of 
its  kind  that  makes  examinations  of  corporate  property  outside  the  state 
and  it  can  easily  be  seen  that  the  recent  growth  in  the  number  of  oil 
companies  in  Texas,  Louisiana,  Oklahoma,  etc.  adds  greatly  to  the  de- 
mands upon  the  time  of  the  inspectors.  One  result  of  the  small  number 
of  inspectors  is  that  the  commissioner  himself  does  some  inspection. 
This  is  regrettable  as  it  prevents  him  giving  full  attention  to  deciding 
important  matters  and  supervising  the  operation  of  the  department.  No 
fault  is  found  with  the  amount  of  work  he  is  doing.  In  fact  he  is  trying 
to  do  what  about  three  men  should  do.  This  is  not  fair  to  the  man, 
the  department  or  the  public,  and  conditions  that  make  it  necessary 
should  be  corrected. 

RECOMMENDATIONS. 

1.  That  the  commissioner  of  securities  be  made  part  of  the 
same  department  that  issues  papers  of  incorporation  and 
that  he  be  appointed  for  an  indeterminate  term  by  the  di- 
rector of  said  department. 

This  is  not  only  logical  but  would  be  of  mutual  advantage,  and 
give  better  service  to  the  public.  Persons  desiring  to  in- 
corporate must  now  go  to  the  secretary  of  state  and  after 
complying  with  the  required  formalities  are  issued  a 
charter.  They  can  sell  no  securities  until  given  permission 
by  the  commissioner  of  securities,  who  is  not  even  in  the 


l62  KErOKT   OF   JOINT   LEGISLATIVE    COMMITTEE 

State  house  which  fact  leads  to  possible  misunderstanding, 
loss  of  time  and  effort  on  the  part  of  the  citizen. 

2.  That  the  commissioner  of  securities  be  provided  with  suf- 
ficient inspectors  to  properly  perform  his  function. 

This  department  is  more  than  self-supporting  and  expects  this 
year  to  net  the  state  about  $40,000.00,  and  yet  has  so  few 
inspectors  that  they  are  now  weeks  behind.  The  inspec- 
tions, per  inspector  average  five  and  one-half  per  week, 
which  is  more  than  can  be  made  properly.  At  present 
everyone  in  the  department  who  is  capable  of  doing  so, 
including  the  commissioner,  is  making  inspections.  The 
result  is  delay  and  an  inferior  quality  of  work  from  lack 
of  time.  This  condition  is  apparently  partly  due  to  the 
commissioner  not  foreseeing  the  growth  of  the  department 
when  making  his  budget  request.  As  the  income  of  this 
department  is  proportional  to  the  work  coming  to  it,  some 
form  of  a  rotary  fund  would  solve  this  problem.  In  any 
event  relief  should  be  promptly  given. 

3.  That  newspapers,  etc.,  be  required  to  submit  to  the  depart- 
ment for  approval  copy  of  proposed  advertisements  of  se- 
curities and  real  estate  located  outside  the  state. 

The  department  should  have  a  close  check  on  such  advertising. 
It  should  have  power  to  prevent  not  only  mistatements  of 
fact  but  misleading  statements  if  it  is  to  protect  the  public 
adequately.  It  should  be  noted  that  a  statute  giving  such 
powers  should  be  so  drafted  that  exception  is  made  of 
lots  in  adjoining  states,  to  relieve  newspapers  in  border  cities 
of  undue  hardship. 

4.  That  a  special  examiner  be  provided  to  cover  illegsd  adver- 
tising, circular  letters,  etc.,  and  to  check  up  the  compliance 
of  holders  of  certificates  with  conditions  imposed  by  the 
department. 

Tliis  has  already  been  reconiniended  by  the  department  and  is  a 
necessity  if  such  work  is  to  be  properly  performed. 

5.  TTiat  inspectors  be  provided  to  run  down  unauthorized  per- 
sons selling  securities  not  appi*^  ved  by  the  department,  espe- 
cially among  the  foreign  population  of  the  cities. 

This  is  a  much  needed  phase  of  the  protective  work  that  should 
be  done  by  this  department,  and  is  not  being  attempted 
because  of  lack  of  help.  At  present  such  sales  are  only 
called  to  the  attention  of  the  department  after  the  damage 
is   done.     It  is  understood   that   considerable   losses   have 


ON    ADMINISTRATIVE    REORGANIZATION  163 

occurred  especially  among  the  foreign  speaking  population 
of  our  cities. 

6.  That  a  study  be  made  of  the  department  to  see  whether  forms 
cannot  be  devised  that  will  shorten  the  present  large  amount 
of  clerical  work. 

It  is  believed  that  such  a  study  might  be  productive  of  results 
but  it  should  be  made  with  care.  The  form  habit  is  very 
dangerous  and  liable  to  become  a  burden  to  real  work. 
This  result  should  be  avoided. 

7.  That  the  chattel  loan  division  be  placed  in  the  department 
charged  with  control  of  corporations. 

This  function  has  nothing  to  do  with  securities  but  properly 
belongs  to  the  department  dealing  with  corporations  and 
with  other  financial  inspectional  services. 

8.  That  the  division  of  chattel  loans  be  given  statutory  control 
over  pawn  shops  and  pawnbrokers. 

A  function  charged  with  control  of  chattel  loans  without  con- 
trol over  pawnshops  is  an  anomaly.  A  proper  statute  con- 
trolling and  regulating  pawn  shops  would  be  of  advantage 
to  both  public  and  owner.  At  present  such  regulation  is  by 
local  ordinance.  The  pawn  shops  of  Cleveland  have  come 
voluntarily  under  control  of  this  department  and  it  is 
understood  that  pawnshops  in  other  cities  are  contemplating 
a  similar  step. 

9.  That  the  suggestions  made  in  the  1918  report  of  this  division 
be  seriously  considered  and  if  possible  covered  by  statute. 

These    suggestions   are   as    follows : 

1 .  Limit  size  of  loan  to  one  borrower. 

2.  Control   of   pawnshops   and   pawnbrokers    (see    No.   8 
above). 

3.  Change  in  interest  charges  and  inspection  fees. 

4.  Give  power  to  refuse  license  for  cause. 

5.  Explicit  definition  of  "office,"  of  "place  of  business." 

6.  Reduction  in  percentage  of  salary  and  wage  earnings 
to  be  assigned. 

7.  Provision   for   submission  of   advertisements   and  cir- 
culars to  the  division  for  approval. 

8.  Possible  regulation  of  installment  houses. 

The  reasons  given  in  the  report  are  sufficient  to  justify  serious 
consideration  of  the  proposals. 


STATE  INSURANCE  DEPARTMENT 

Prepared   Under  the  Direction  of 

By  DR.  L.  D.  UPSON 

By  C.  E.  RIGHTOR 


The  survey  of  the  insurance  department  was  made  through  confer- 
ences, with  the  superintendent  of  insurance  and  his  subordinates,  review 
of  the  procedure  of  the  office  and  report  blanks,  examination  of  the 
statutes  affecting  .the  superintendent  of  insurance,  and  of  the  annual 
reports  prepared  by  that  official. 

ORGANIZATION. 

The  department  is  under  the  direction  of  the  superintendent  of  in- 
surance, who  is  apointed  by  the  governor  with  the  advice  and  consent 
of  the  senate,  for  a  three-year  term.  The  superintendent  may  appoint 
a  deputy  superintendent,  with  the  same  qualifications  as  his  own,  with 
power  to  perform  the  duties  of  the  superintendent  in  case  of  his  absence 
or  disability.  He  shall  also  appoint  a  warden,  and  may  employ,  with 
the  approval  of  the  governor,  an  actuary  and  such  clerks  and  examiners 
as  the  business  requires.  The  superintendent,  with  the  approval  of  the 
governor,  fixes  their  compensation. 

The  duties  of  the  superintendent,  by  Section  617  et  seq.  of  the 
General  Code,  are  to  "see  that  the  laws  relating  to  insurance  are  duly 
exercised  and  enforced".  In  event  of  violation,  he  shall  cause  the  sus- 
pected person  to  be  arrested,  furnishing  the  proper  prosecuting  attorney 
with  the  information.  He  may  examine  the  affairs  of  any  insurance 
company  doing  business  in  the  state,  and  have  access  to  its  papers,  books 
and  documents ;  issue  and  revoke  licenses  to  do  insurance  business ;  re- 
quire deficient  companies  to  discontinue  business  and  defaulting  com- 
panies to  be  dissolved,  taking  charge  of  the  same  if  necessary;  and 
evaluate  policies  of  all  life  insurance  companies  annually.  Every  insur- 
ance company  must  furnish  the  department  annually  with  sworn  state- 
ments as  to  its  assets,  liabilities,  profits,  losses,  etc.,  on  forms  prescribed 
by  the  superintendent ;  and  the  superintendent  shall  prepare  an  annual 
rejiort  as  to  the  general  conduct  and  condition  of  each  compajiy.  com- 
piling a  separate  report  for  life  insurance  companies,  and  another  for 
companies  other  than  life. 

i^»4 


ON    ADM  (NISTKATLVK    KI-:(  >Kt  ;A  N  J/.ATK  UN  165 

The  superintendent  has  at  jn-esent  the  following-  organization  : 

I  deputy  superintendent 
I  chief  examiner 
I  actuary 
I  statistician 

1  hcense  clerk 
5  examiners 

5  assistant  examiners 

4  assistant  actuaries 

2  assistant  statisticians 

3  stenographers 

7  clerks  (4,  part  time^ 

The  examiners  and  assistant  examiners  constitute  the  field  force, 
making  examinations  of  companies  and  preparing  reports  on  same,  under 
the  direction  of  the  chief  examiner.  During  two  months  of  the  year 
they  examine  the  annual  reports  of  companies,  at  the  department  offices 
The  actuary  does  the  work  designated  by  his  title,  and  the  statistician 
compiles  the  figures  from  the  annual  reports,  and  other  data  required 
by  the  department;  the  bookkeeper  keeps  accounting  records,  —  as  to 
fees  charged  companies,  collections  of  same,  payrolls,  requisitions,  etc. 
He  also  keeps  the  accounts  of  securities  of  insurance  companies,  amount- 
mg  to  nearly  $13,000,000  and  pays  the  premium  on  his  own  surety  bond 
of  $10,000  in  this  connection.  License  clerks  issue  certificates  of  com- 
pliance to  companies,  and  licenses  to  agents,  solicitors  and  brokers.  The 
deputy  superintendent  performs  the  legal  work  of  the  department,  and 
makes  preliminary  examinations. 

EXPENSES  OF  THE  DEPARTMENT. 

The  expenses  of  the  superintendent  and  assistants  are  paid  from  the 
general  revenue  fund  of  the  state,  as  appropriated  therefor.  Expenses 
of  examinations  are  paid  by  the  state,  except  that  if  the  examination  is 
made  upon  application  of  an  insurance  company  the  expenses  are  paid 
by  such  company.  The  retaliatory  provision  prevails  for  companies  of 
other  states.  The  expenses  of  conducting  the  department  for  the  year 
ending  June  13,  1919,  were  approximately  $52,000. 

INCOME    FROM    INSURANCE    COMPANIES. 

The  superintendent  of  insurance  collects  from  each  insurance  com- 
pany doing  busines  in  the  state  fees  for  filing  a  copy  of  its  chartei. 
statements,  and  other  papers ;  for  the  issuance  of  licenses  ;  and  from  each 
life  insurance  company,  for  the  annual  valuation  of  its  policies;  the 
schedule  of  these  fees  is  fixed  by  Section  657.  Section  661  provides  for 
the  collection  of  a  fee  for  each  license  and  renewal  issued.     At  the  time 


l66  Klil'OUT  OF   JOINT    I.licaSLATIVE   COMMITTEE 

of  filing  each  annual  statement  of  gross  premiums  charged  for  msurancc 
placed  (less  return  premiums),  each  company  pays  to  the  superintendent 
a  tax  of  5%  of  such  net  premiums  (Sec.  664).  A  tax  of  5%  of  gross 
premiums  is  colected  by  the  superintendent  on  all  unauthorized  insurance 
written  in  the  state.  (Sec.  664-1). 

To  maintain  the  department  of  state  fire  marshal,  each  fire  insurance 
company  doing  business  in  the  state  pays  a  tax  of  one-half  of  one  per 
cent  on  gross  premium  receipts,  (after  deducting  return  premiums  and 
reinsurance),  as  provided  by  section  841,  such  income  being  placed  to 
the  credit  of  a  special  fund  for  the  maintenance  of  that  office. 

The  superintendent  computes  a  tax  of  2><%  of  the  net  premiums 
(gross  premiums  less  returns  and  reinsurances)  of  all  insurance  com- 
panies incorporated  by  the  authority  of  another  state  or  government,  as 
shown  by  the  annual  statement  of  the  company;  this  income  is  paid  by 
the  company  to  the  treasurer  of  the  state,  and  the  amount  credited  to  the 
general  revenue  fund  of  the  state  (Sec.  5433). 

The  total  income  to  the  state  from  the  foregoing  fees  and  taxes 
for  the  year  ending  December  31,  1918,  (the  last  figures  available)  was 
as  follows : 

Fire  marshal's  tax,  i  of  1%   (collected  by  state  treasurer)         $115,336 

Taxes  on  foreign  insurance  companies,  2J%  of  net  prem- 
iums  (collected  by  state  treasurer) 2 ,  133 , 581 

Fees  of  insurance  companies  for  conducting  business,  fil- 
ing statements,  charters,  issuance  of  licenses,  ex- 
aminations ,   etc 15^1 ,  179 

Tax  of  5%  on  unauthorized  insurance 10,071 

Total    $2,450,167 

The  insurance  business  is  one  of  the  largest  sources  of  income  to 
the  state. 

EXTENT    OF    INSUR-^NCE    BUSINESS. 

The  department  supervises  the  business  of  696  insurance  companies, 
of  which  513  are  other  than  life  companies,  and  183  are  life,  fraternal 
and  assessment  companies  giving  accident  and  sick  benefit  insurance. 
During  the  year  1918',  the  183  life,  fraternal,  and  accident  companies 
had  in  force  4,203,000  policies,  with  an  insurance  value  of  $2,324,000,000. 
Net  premiums  paid  these  companies  by  policy  holders  during  the  year 
amounted  to  v$58,7 17,000,  and  losses  paid  to  policy  holders  amounted  to 
$30,786,000. 

Of  other  than  life  insurance,  199  stock  fire  and  marine  companies, 
145  assessment  fire  and  miscellaneous  associations,  72  mutual  fire,  and 
97  miscellaneous  companies,  wrote  risks  in  Ohio  during  the  year  1918 
amounting  to  $3,905,859,000;  policy  holders  paid  $56,742,000,  and  re- 
ceived $26,617,000.     The   t()ta\   rif.ks   in    force  at  the  close  of   the  year 


ON    ADMINISTRATIVE   REORGANIZATION  167 

1918,  therefore,  for  all  insurance  companies,  amounted  to  $6,880,000,000; 
policy  holders  paying  to  the  companies  $122,000,000  and  receiving 
$57,000,000.  These  figures  make  apparent  the  extent  of  insurance,  and 
emphasize  the  direct  concern  of  every  citizen  in  the  proper  regulation 
and  conduct  of  this  class  of  business. 

To  show  the  relative  importance  of  Ohio  with  several  other  states, 
in  the  extent  of  insurance  and  state  regulation  of  same,  the  following 
figures  were  prepared  by  the  superintendent  of  insurance : 


i68 


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ON    ADMINISTRATIVE   REORGANIZATION  169 

It  will  be  apparent  that  a  business  of  this  magnitude  and  diversity 
requires  close  and  continuous  supervision  by  the  state.  The  law  provides 
(Sec.  625)  that  the  superintendent  may  "examine  the  affairs  of  any  in- 
surance company  doing  business  in  the  state",  and  that  he  shall  make 
•'each  year  an  examination  of  the  assets  of  every  life  insurance  com- 
pany organized  under  the  laws  of  this  state".  He  may  publish  the  result 
of  such  investigation,  and  may  requisition  any  bank  for  information 
relative  to  the  financial  transactions  of  any  insurance  company. 

The  department  endeavors  to  examine  Ohio  fire  insurance  companies 
once  every  two  years.  There  are  eleven  ordinary  life,  five  assessment 
life,  and  nineteen  fraternal  life  insurance  companies  organized  under  the 
Ohio  laws,  and  requiring  annual  examination.  There  are  also  25  mutual 
fire,  139  assessment  fire,  9  stock  fire,  and  24  miscellaneous  insurance 
companies  other  than  life,  organized  under  the  Ohio  laws,  which  may 
be  examined  at  the  discretion  of  the  superintendent.  For  companies 
organized  under  other  state  laws,  it  is  customary  for  the  department  to 
accept  the  examination  of  the  home  state  department,  except  under  un- 
usual conditions. 

It  is  found  possible  to  make  only  the  statutory  examination  of  the 
larger  life  insurance  companies  of  the  state,  due  to  the  limited  number 
of  examiners  and  comprehensiveness  of  a  thoroughgoing  investigation; 
the  examiners  work  in  pairs  throughout  the  state  as  required.  During 
the  year  1918  36  examinations  were  made,  and  for  1919  it  was  hoped 
at  the  time  the  survey  was  being  made  (November)  to  exceed  this 
number  somewhat. 

The  department  cannot  make  the  necessary  number  of  examinations, 
nor  make  them  complete,  because  of  insufficient  staff.  The  interests  of  the 
public  cannot  be  best  ser^^ed  under  these  conditions.  Further,  the  com- 
panies are  handicapped  through  the  lack  of  examinations,  as  in  some 
cases  they  cannot  secure  a  certificate  of  authority  from  other  states  to 
transact  business  without  being  able  to  present  a  copy  of  the  state  super- 
intendent's examination  bearing  a  recent  date.  It  is  also  stated  that  in 
the  issuance  of  licenses  the  department  is  from  four  to  six  months  in 
arrears  each  year,  due  to  the  volume  of  this  work  and  insufficient  clerical 
assistance.  While  the  qualifications  for  examiners  as  established  by  the 
civil  service  commission  are  sufficiently  high,  it  is  difficult  to  obtain  an 
eligible  list  because  of  low  compensation.  Montgomery,  in  his  "Auditing 
Theory  and  Practice"  has  written  as  follows: 

"The  examinations  made  by  the  state  insurance  commis- 
sioners are  similar  in  purpose  to  examinations  of  banking  insti- 
tutions made  by  the  national  and  state  governments.  The  chief 
ends  sought  in  these  examinations  are  to  ascertain  whether  or 
not  the  company  is  solvent  and  to  prevent  any  violation  of  the 
insurance  laws. 


lyO  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

"As  it  is  to  be  expected,  the  state  examinations  vary  con- 
siderably as  to  the  efficiency  with  which  they  are  conducted.  It 
is  not  to  be  wondered  at  if  the  staff  of  the  department,  whose 
members  may  have  been  recruited  largely  through  the  medium 
of  political  appointments,  does  not  possess  technical  ability  or 
experience  of  a  very  high  order." 

The  report  fomis  used  by  the  department  are  the  recently  revised 
and  standard  forms  adopted  by  the  National  Association  of  Insurance 
Commissioners,  and  make  available  to  the  department  all  pertinent  in 
formation  relative  to  the  business  and  soundness  of  each  insurance 
company. 

As  with  the  department  of  banks  and  department  of  building  and 
loan  associations,  one  of  the  most  important  functions  of  the  insurance 
department  is  the  work  done  on  behalf  of  the  public  as  policyholders  and 
stockholders,  as  well  as  for  the  benefit  of  the  insurance  business  as  a 
whole.  An  accurate  knowledge  of  the  condition  of  any  company  is  re- 
vealed in  the  departmental  examination  and  annual  reports,  together 
with  the  follow-up  correspondence  which  this  gives  rise  to,  and  as  a 
result  of  the  information  thus  obtained,  the  department  gives  special 
attention  to  the  companies  experiencing  financial  difficulties,  or  conduct- 
ing their  affairs  in  a  questionable  manner. 

RECOMMENDATIONS. 

1  —  That  the  insurance  department  be  transferred  to  the  pro- 

posed department  of  trade  and  commerce. 

At  present  the  department  is  an  independent  unit  of  the 
state  government,  the  superintendent  reporting  directly  to  the 
governor.  The  function  performed  by  the  department  is 
regulatory,  and  is  coordinate  with  the  work  of  the  department 
of  banks,  department  of  building  and  loan  associations,  and 
other  activities.  It  is  believed  that  the  best  results  in  admin- 
istration of  the  state  government  as  an  entity  may  be  obtained 
only  by  establishing  organization  units  on  a  functional  basis, 
and  placing  each  department  under  the  direction  of  a  single 
responsible  official  appointed  by  the  governor. 

The  advantages  which  might  accrue  from  such  reorgan- 
ization, both  in  economy  and  in  efficiency  of  administration, 
are  discussed  more  fully  in  the  report  on  "Department  of 
Banks"  under  recommendation  Number  i. 

2  —  That,  as  a  separate  bureau  of  the  department  of  trade  and 

commerce,   the   internal   organization   remain   substantially 
as  at  present. 


ON   ADMINISTRATIVE   REORGANIZATION  I7I 

It  is  believed  that  the  superintendent  of  insurance  should 
be  appointed  by  the  director  of  the  department  of  trade  and 
commerce,  subject  to  civil  service  regulations.  Continuity  of 
policy  in  administration  of  the  affairs  of  the  department  would 
be  more  secure  under  such  plans  than  at  present,  when  the 
superintendent  is  liable  to  removal  with  each  change  in  admin- 
istration (subject  only  to  the  expiration  of  his  term  of  ap- 
pointment) . 

It  is  not  contemplated  that  the  staff  doing  insurance  work 
would  be  combined  with  or  absorbed  by  that  of  any  other 
bureau  of  the  department  of  trade  and  commerce,  except  pos- 
sibly as  to  certain  clerical  service. 

3  — That  the  organization  be  established  upon  a  basis  which 

will  better  enable  it  to  function  in  accord  with  the  duties 
and  responsibilities  placed  upon  it. 

Additional  appropriations  are  needed  to  employ  requisite 
number  of  examiners  and  assistants. 

There  is  nothing  in  the  law  to  indicate  that  the  income 
accruing  on  account  of  fees,  licenses,  excise  taxes  or  any 
other  source  of  revenue  charged  or  collected  by  the  insurance 
department  should  be  available  for  the  purposes  of  operating 
the  department.  It  is  possible,  however,  that  in  fixing  a 
schedule  of  fees  to  be  paid  by  insurance  companies  it  ,was 
the  intention  of  the  framers  of  the  law  to  provide  and  insure 
ample  funds  to  maintain  the  department.  Under  present  con- 
ditions, the  appropriations  for  the  activity  are  less  than  one- 
third  the  amount  of  income  from  fees  received  from  the  com- 
panies. Comparative  statistics  indicate  that  the  legislative  al- 
lowance for  this  department  has  not  kept  pace  with  the  ex- 
pansion of  the  insurance  business  done  within  the  state. 

With  funds  being  received  directly  from  the  insurance 
companies,  there  is  every  reason  to  afford  the  citizens  of  the 
state  every  reasonable  protection  in  the  vast  business  of  in- 
surance, and  likewise,  to  protect  the  companies  themselves. 

4  —  That   the  annual  report   of   the  superintendent   include  a 

statement  of  the  activities  of  the  department. 

This  report  should  show  the  extent  of  services  being  per- 
formed for  the  public  by  the  department,!  with  particular  em- 
phasis on  the  preventive  work  with  companies.  It  should  also 
include  general  recommendations  by  the  superintendent,  based 
upon  his  experience  during  the  year. 

The  value  of  such  report  to  the  governor  for  administra- 
tive purposes,  to  the  general  assembly  in  determining  upon  ap- 
propriations, and  to  the  public  for  informative  purposes,  will 
be  apparent. 


THE  SUPERINTENDENT  OF  BANKS 
AND  BANKING 

Prepared  Under  the  Direction  of 

DR.  L.  D.  UPSON 

By  C.  E.  RIGHTOR 


SOURCES 

The  survey  of  this  department  was  made  through  conferences  with 
the  Superintendent,  Mr.  PhiHp  C.  Berg,  and  Assistant  Superintendent, 
Mr.  Elmer  J.  Obendorfer,  both  since  resigned;  also  by  examination  of 
the  general  procedure  of  the  office,  review  of  the  statutes  affecting  the 
department,  and  of  the  annual  reports  of  the  superintendent. 

DUTIES    AND    EXPENSES    OF    OPERATION 

A  new  state  banking  code,  which  became  effective  July  ii,  1919. 
regulates  the  activities  of  the  department.  This  code  is  a  recodification 
of  the  Ohio  banking  laws,  and  represents  the  efforts  of  a  committee 
appointed  by  the  Ohio  Bankers  Association  which  worked  in  conjunction 
with  the  ofificers  of  this  department,  and  it  embodies  recommendations 
made  by  several  former  superintendents,  as  a  result  of  their  experience, 
as  well  as  of  bankers  both  within  and  outside  the  state. 

By  section  710  of  the  General  Code,  the  superintendent  of  banking 
is  required  to  examine  the  aft'airs  and  accounts  of  each  bank  at  least 
once  each  year;  to  order  four  reports  each  year  from  every  bank;  to 
submit  to  the  governor  annually  a  summary  of  the  condition  of  each  bank, 
as  to  its  capital,  debts,  deposits,  etc. ;  to  prevent  unauthorized  banking 
and  the  establishment  of  new  private  banks ;  to  liquidate  insolvent  banks ; 
and  regulate  the  investments  of  banks. 

The  work  of  the  department  is  under  the  direction  of  the  superin- 
tendent, who  is  appointed  by  the  governor  with  the  advice  and  consent 
of  the  senate,  for  a  four-year  term.  The  superintendent  may  employ 
assistants,  clerks  and  examiners,  and  l\x  their  salaries.  At  present 
the  staff  is  as  follows: 

I   assistant   superintendent, 
I    ittorney-examincr, 
I   chief  examiner, 
10  examiners, 

172 


ON    ADM  INISIKATIXI':    Ki -DKCAN  IZATloN  173 

3  assistant  examiners, 

I  secretary, 

I  bookkeeper, 

I  statistician, 

3  stenographers. 

The  phase  of  work  done  by  each  is  indicated  in  the  title  of  position. 
The  examiners  and  assistant  examiners  constitute  the  field  force,  making 
examinations  of  banks  and  preparing  reports  on  same.  The  assistant 
superintendent  and  chief  examiner  review  these  reports  and  conduct 
the  necessary  follow-up  correspondence  on  them.  The  assistant  super- 
intendent and  attorney-examiner  make  preliminary  investigations  of 
proposed  banks.  The  statistician  compiles  the  several  call  statements 
and  the  annual  reports  of  banks. 

The  cost  of  operation  of  the  department  is  borne  by  fees  paid  by 
the  banks,  at  a  rate  fixed  by  statute.  Expenses  of  preliminary  and 
special  examinations  are  additional  assessments.  The  new  code  provides 
that  the  fund  raised  by  assessment  of  banks  shall  be  used  only  for  the 
maintenance  of  the  banking  department,  and  not  as  a  source  of  general 
revenue  to  the  state. 

GENERAL    COMMENT 

The  new  code  is  considered  a  modern  and  model  law,  and  its  en- 
forcement by  the  superintendent  affords  the  citizens  every  reasonable 
protection  in  their  relations  with  any  kind  of  bank.  Prospective  banks 
must  submit  their  plans,  and  receive  the  approval  of  the  superintendent 
before  beginning  business,  and  his  findings  are  subject  to  review  by  the 
governor^-  attorney  general  and  superintendent  of  banks.  All  banks 
must  submit  to  periodic  examinations,  and  every  phase  of  their  business 
is  open  to  review  by  the  department.  The  amount  of  capital,  and  the 
nature  of  loans  and  investments,  are  regulated  by  law,  the  responsibility 
of  directors  is  covered,  the  forms  of  books  and  accounts  may  be  pre- 
scribed, and  other  features  not  only  safeguard  the  public  but  protect 
the  banks  in  all  legitimate  matters.  Commercial  banks,  savings  banks, 
and  trust  companies  are  all  under  the  control  of  the  department,  as  are 
also  unincorporated  Sanks  and  dealers  in  foreign  exchange. 

The  examiner's  report  forms,  for  banks  and  for  trust  departments 
are  unusually  complete,,  having  been  revised  in  the  light  of  the  best  ex- 
perience in  Ohio  and  other  states,  and  make  available  to  the  department 
an  ample  knowledge  of  actual  conditions  in  the  bank  at  the  time  of 
examination.  The  field  examiners  apparenth"  make  every  effort  to  have 
their  reports  complete. 

The  report  of  the  superintendent  for  the  year  ending  June  30, 
1919,  discloses  that  there  are  612  incorporated  banks  in  Ohio,  with  re- 
sources of  $1,158,000,000,  and  169  unincorporated  banks  with  $52,000,- 


174  REPORT  OF   JOINT   LF.GISLATIVE    COMMITTEE 

GOO  of  resources.    There  are  also  369  national  banks,  with  total  resources 
of  slightly  over  $1,000,000,006,  or  less  than  that  of  the  state  banks. 

The  department,  during  the  year  ending  June  30,  1919,  made  1,012 
examinations,  as  follows : 

First    782 

Second    125 

Branch  Banks  76 

Special    14 

Preliminary    15 

Total    1 ,012 

It  will  be  appreciated  that  an  important  feature  of  the  regulatory 
service  of  the  department  is  the  prevention  of  irregularities  and  the 
remedy  of  faulty  conditions  before  losses  are  incurred  by  the  depositors 
and  stockholders.  Extensive  correspondence  arises  in  this  connection, 
and  is  followed  when  necessary  with  extra  examinations,  frequent  re- 
ports, and  personal  conferences  by  the  superintendent,  the  assistant 
superintendent  or  the  chief  examiner.  Legal  questions  are  referred  to 
the  attorney-examiner. 

The  success  of  this  phase  of  the  work  is  measured  in  part  by  the 
number  of  failures  and  liquidations,  altho  in  large  measure  its  function  is 
negative  —  the  prevention  of  irregularities.  Since  1910  there  have  been 
13  l)ank  failures,  one  of  which  occurred  during  the  year  ending  June  30. 
Kjii;.  (  )f  this  number  8  are  now  in  process  of  li(|uidation,  so  that  the 
exact  loss  to  depositors  is  not  ascertainable.  It  may  be  stated  that  the 
department  cannot  be  held  responsible  for  these  failures,  even  though 
an  examination  of  the  institution  is  made  at  least  once  a  year.  In  some 
cases,  even  the  boards  of  directors  and  officers  are  not  vigilant  enough 
to  detect  such  irregularities  as  forged  signatures,  etc.,  which  it  is  be- 
yond the  duty  of  the  banking  department  to  detect.  Montgomery',  in  his 
"Auditing  Theory  and  Practice",  states : 

"Government  examiners  should  not  be  too  sharply  criti- 
cized for  their  failure  to  detect  such  conditions  (defalcations), 
as  the  time  allowed  for  separate  examinations, is  limited,  and  it 
is  physically  impossible  for  them  to  make  thorough  audits  with- 
in time  available.  Again,  it  must  be  remembered  that  the  chief 
object  of  these  examiners  is  to  ascertain  that  the  banks  are 
solvent  and  are  complying  with  the  law.  Some  degree  of  pro- 
tection is  afforded  depositors  by  these  examinations,  but  the  ex- 
aminers do  not  represent  the  stockholders  or  directors,  and 
the  directors  should  not  regard  the  work  of  the  examiners  as 
being  done  for  their  benefit. 

"Official  examiners  recognize  this  state  of  affairs  and  are 
making  a  determined  effort  to  improve  the  unsatisfactory  con- 
ditions which  exist." 


ON    ADMINISTRATIVE    REORGANIZATION  1/5 

RECOMMENDATIONS 

It  is   recommended  — ■ 

1  —  That    the    department    of    banking    be    transferred    to    the 

proposed  department  of  trade  and  commerce. 

It  is  believed  that  such  reorganization  would  strengthen 
the  general  organization  of  the  state  government,  and  would 
interfere  in  no  wise  with  the  conduct  of  the  service.  The 
regulation  of  banks  is  but  one  of  several  regulatory  activities 
being  undertaken  by  the  state,  and  it  is  believed  that  all  of 
these  services  should  be  placed  under  the  direction  of  a  single 
administrative  officer,  to  be  appointed  by  the  governor. 

The  consolidation  into  one  administrative  office  of  the 
several  regulatory  services  now  located  in  different  buildings 
in  Columbus  would  be  of  advantage  economically.  Certain 
overhead  costs  should  be  reduced,  —  as  rent,  use  of  office 
space  and  equipment,  telephones,  libraries,  and  works  of  refer- 
ence, etc.  Possible  reduction  of  office  staff  might  be  effected, 
and  at  least  it  would  be  possible  to  provide  for  their  employ- 
ment on  the  work  of  the  several  bureaus,  dependent  upon 
seasonal  or  orher  fluctuation  of  the  work. 

The  several  officials  of  regulatory  activities  now  refer 
matters  only  occasionally  to  the  governor,  except  by  an  annual 
report.  They  operate  largely  as  independent  units,  without 
regard  or  concern  for  other  services.  There  is  even  the  pos- 
sibility of  their  contact  with  the  state  becoming  so  occasional 
that  the  tendency  is  to  feel  themselves  employed  by  their  par- 
ticular class  of  business,  instead  of  the  state.  With  one  offi- 
cial in  charge  of  all  such  services,  it  is  beheved  the  state's 
interest  would  be  best  maintained  under  all  conditions. 

2  —  That  as  a  separate  bureau  of  the  department  of  trade  and 

conunerce,  the  same  organization  be  continued  as  at  pres- 
ent. 

The  hne  of  authority  within  the  department  at  present 
is  satisfactory.  The  superintendent  of  banks  should  be  named 
by  the  director  of  trade  and  commerce,  subject  to  civil  service 
regulations.  With  the  present  short  term  of  the  chief  execu- 
tive, and  the  consequent  probability  of  frequent  change  with 
administrations  of  appointive  department  heads,  the  advantages 
of  placing  this  important  position  upon  a  certain  degree  of 
permanency  of  tenure  will  be  obvious. 

3  —  That   the  income  from   fees  levied  by  the  department   be 

placed  in  the  general  fund. 

It  is  believed  that  it  is  no  longer  necessary  in  state  gov- 
ernment to  attempt  to  set  up  for  each  department  or  special 


Ij6  RF.i'OKT   OF   JOINT   LEGISLATINE    COMMJTTEE 

service  a  -eijarate  fund.  It  would  apiKVir  that  there  cannoi 
possibly  be  any  objection  to  the  money  received  from  fees 
going  into  the  general  or  current  operating  fund  of  the  state, 
and  disbursements  for  the  service  being  made  from  the  gen- 
eral fund,  provided  only  that  a  separate  accounting  be  had  of 
such  income  and  disbursements  for  the  specific  service.  It 
is  contemplated  that  the  director  of  finance  will  establish  the 
necessary  system  of  accounts  for  this  and  every  other  office 
of  the  government. 

Once  the  general  assembly  recognizes  the  necessity  for  the 
state  to  undertake  the  regulation  of  banks,  it  is  of  little  con- 
sequence whether  the  fees  levied  result  in  a  surplus  or  deficit 
during  any  year.  There  is  no  reason  for  prohibiting  the  use 
of  any  excess  in  conducting  other  state  work;  neither  is  it 
mandatory  on  the  department  to  be  self-supporting.  The  ex- 
tent and  quality  of  the  service  properly  to  be  performed,  and 
its  cost,  should  govern  appropriations.  Present  conditions 
indicate  that  there  is  not  sufficient  appropriation,  and  salaries 
are  inadequate,  to  permit  the  department  to  function  on  the 
best  basis,  i^r  the  year  ending  June  30,  1919,  the  income 
of  the  department  was  $95,000,  and  expenses  were  $72,000. 

Additional  appropriation  would  enable  the  superintendent 
to  exercise  his  judgment  more  fully  in  making  examinations. 
It  is  possible  that  two  examinations  of  bank's  should  be  made 
annually  in  a  great  many  cases. 

The  resignations  of  eleven  employes  during  the  past  few 
months,  out  of  an  entire  staiY  of  twenty-three,  indicates  that 
the  compensation  is  not  sufficient  for  the  kind  of  work  required 
to  be  done.  While  public  office  is  commonly  considered  as  a 
training  field  for  citizens  who  may  desire  to  go  into  private 
business  later,  compensation  and  working  conditions  should  be 
on  a  scale  that  the  service  is  not  impaired  through  wholesale 
and  continued  change  of  personnel. 

Readjustment  of  these  matters  would  result  in  the  in- 
come of  the  department  l)eing  more  nearly  exhausted  each 
year  in  operating  the  de]<artmcnt.  without  incentive  to  ac- 
cumulate from  year  to  year  a  larger  balance. 

4  —  It  is  recommended  that  the  legal  work  of  the  department 
be  performed  by  an  employe  of  the  office  of  attorney  gen- 
eral. 

This  recommendation  is  made  in  order  to  centralize  the 
legal  work  of  the  state  in  the  office  of  the  attorney  general, 
as  .it  should  be.  Adoption  of  this  suggestion  will  insure  that 
the  attornev   general   is   cognizant   of   and   assumes   resi)onsi- 


ON    ADMINISTRATIVE    RKORGANIZATION  I'J'J 

bility  for  all  legal  decisions  of  the  (leiKirlment,  whereas  at 
present  he  is  conferred  with  only  occasionally.  Should  the 
legal  work  of  the  department  reiinire  the  full  time  of  one 
attorney,  the  attorney  general  niay  designate  an  empkjye  of 
his  office  to  this  work  ;  (Jtherwise.  he  can  best  apportion  the 
time  of  an  attorney  between  this  and  other  departments. 

5  —  That  the  annual  report  of  the  superintendent  to  the  gov- 

ernor include  a  statement  of  the  preventive  work  done  by 
the  department,  —  that  is,  the  number  of  banks  requiring 
extra  attention,  the  nature  and  extent  of  such  service,  and 
the  possible  losses  forestalled  to  depositors  and  stock- 
holders, and  other  relevant  remarks. 

The  law  providing  a  penalty  for  disclosure  of  secret  in- 
formation need  not,  of  course,  be  violated  in  preparing  such 
statement. 

The  value  of  such  report  to  the  governor  for  administra- 
tive purposes,  to  the  general  assembly  in  determining  upon 
appropriations,  and  to  the  ])ublic  for  informative  purposes, 
needs  no  discussion. 

6  —  That  the  budget  of  the  department  include  all  expenses. 

The  cost  of  printing  reports,  statements,  etc.,  for  this 
office  is  now  provided  by  an  appropriation  to  the  superintend- 
ent of  pulic  printing.  This  is  a  general  practice  for  the  print- 
ing costs  of  most  offices,  but  it  is  believed  each  department 
should  carry  its  own  appropriation  for  this  expense,  in  order 
that  true  costs  may  be  reflected. 

7  —  That  the  feasibility  of  combining  examining  staffs  for  banks 

and  building  and  loan  associations  be  considered  by  the 
proper  administrative  officers  under  the  proposed  reorgaui- 
ization  plans. 

The  qualifications  of  examiners  for  either  kind  of  busi- 
ness should  be  equally  high.  The  possibility  of  interchange  of 
staff  members  as  required  should  result  in  bringing  wider 
experience  into  examination,  and  large  institutions  could  be 
more  easily  and  promptly  examined.  Economy  might  be  ef- 
fected in  routing  examiners  to  reduce  traveling  expenses  to 
a  minimum.  Under  these  conditions  it  should  prove  feasible 
to  call  the  examiners  in  periodically  for  conference  and  in- 
struction. 


12 


DEPARTMENT  OF  BUILDING  AND  LOAN 
ASSOCIATIONS 

Prepared  Under   Direction  of 

DR.  L.  D.  UPSON 

By  C.  E.  RIGHTOR 


The  survey  of  this  department  was  niade  through  conferences  with 
the  inspector  of  building  and  loan  associations,  and  his  office  assistants ; 
by  observation  of  the  routine  of  the  office ;  review  of  the  statutes  relating 
to  the  department,  and  an  examination  of  the  annual  reports  of  the  in- 
spector. 

DUTIES 

The  inspector  of  building  and  loan  associations,  by  section  674  et  seq. 
of  the  General  Code,  is  authorized  to  see  that  the  laws  relating  to  building 
and  loan  associations  are  duly  executed  and  enforced;  in  event  of  viola- 
tion, to  take  testimony  and  demand  that  action  be  brought  by  the  attorney 
general  or  proper  prosecuting  attorney';  at  least  once  each  year  to  make 
an  examination  of  each  association;  to  revoke  the  charter  of  any  associa- 
tion conducting  its  business  contrary  to  law;  to  dissolve  unsound  insti- 
tutions ;  to  prevent  and  correct  improper  methods  and  faulty  practices,  and 
to  make  an  annual  report  of  the  conduct  and  condition  of  all  associations. 
Each  association  must  make  an  annual  report  to  the  inspector  of .  its 
affairs,  on  forms  prescribed  by  him.  Foreign  associations  doing  business 
in  the  state  are  required  to  conduct  their  business  according  to  the  laws 
governing  domestic  associations,  after  procuring  a  certificate  of  authority 
from  the  inspector  and  depositing  a  bond  of  $100,000  with  the  inspector, 
who  deposits  same  with  the  state  treasurer. 

ORGANIZATION 

The  inspector  is  appointed  by  the  governor,  wdth  the  advice  and  con- 
sent of  the  senate,  for  a  three-year  term.  He  is  required  to  give  bond 
for  $10,000,  which  is  filed  with  the  secretary  of  state.  The  inspector 
may  employ  the  necessary  deputies,  examiners  and  clerks,  and  fix  their 
salaries.     At  the  present  time  the  inspector  has  the  following  staff: 

1  deputy  inspector 

2  assistant  deputies 
I  auditor 

I  statistician 
I  correspondence  clerk 
12  examiners. 

178 


ON    ADMINISTRATIVE   REORGANIZATION  I79 

The  deputy  inspector,  one  assistant  deputy  and  examiners  constitute 
the  field  force,  and  are  engaged  throughout  the  year  in  making  examina- 
tions of  associations,  preparing  detailed  reports  of  examinations,  and 
presenting  to  boards  of  directors  matters  requiring  special  attention. 

One  assistant  deputy  handles  general  correspondence,  analyzes  ex- 
aminers' reports,  conducts  preliminary  examinations,  constitutions,  by- 
laws, etc.,  of  newly  incorporated  associations,  and  assigns  examiners. 
The  auditor  audits  the  annual  reports  filed  by  all  associations,  computes 
the  fee  for  filing  same,  receives,  records,  and  transmits  same  to  state 
treasurer,  and  handles  accounting  matters  for  the  office,  as  payrolls  and 
requisitions.  The  statistician  abstracts  the  financial  statements  of  the 
annual  report,  for  publication  as\  required  by  law.  The  correspondence 
clerk  copies  all  examination  reports  (nearly  700  annually)  and  does  other 
typing  and  clerical  work. 

The  several  divisions'  of  the  work  of  the  department  are  shown  on 
the  accompanying  chart. 

The  expenses  of  the  department  are  paid  from  the  general  fund  of 
the  state,  as  appropriated  therefor.  A  fee  for  filing  the  annual  report, 
and  for  filing  other  papers  and  reports,  is  provided  by  statute,  and  is  col- 
lected by  the  inspector,  and  by  him  deposited  with  the  state  treasurer. 
All  fees  received  from  this  source  go  into  the  general  fund. 

A  general  review  of  the  work  performed  by  the  department,  and  in- 
quiries made  of  some  associations  in  the  state,  indicate  that  this  activity 
is  being  effectively  carried  on,  to  the  satisfaction  of  the  associations  and 
protection  of  the  public. 

There  were  on  June  30,  1919,  691  associations  in  Ohio,  having  a 
capital  of  $993,000,000,  and  514,000  borrowers  and  stockholders.  It  is 
recognized  that  Ohio  is  one  of  the  foremost  states  in  the  extent  and 
volume  of  the  building  and  loan  business.  The  growth  of  the  depart- 
ment has  not  kept  pace  with  the  increase  in  number  of  associations  and 
business  done,  during  the  past  several  years,  and  as  a  result  it  is  with 
difficulty  that  the  required  number  of  examinations  are  made  and  ade- 
quate control  over  affairs  is  had. 

RECOMMENDATIONS 

I  —  That  the  department  of  building  and  loan  associations  be 
transferred  to  the  proposed  department  of  trade  and  com- 
merce. 

The  work  of  the  department  is  regulative,  —  to  control 
and  supervise  the  operations  of  a  class  of  financial  institutions 
in  a  manner  best  to  safeguard  and  conserve  the  interests  of 
the  public,  borrowers,  stockholders,  and  the  associations  them- 
selves. While  the  extent  of  the  business  is  recognized,  it  is 
believed  that  mere  size  of  a  business   requiring  state  super- 


l8o  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

vision  is  not  sufficient  reason  for  the  maintenance  of  a  separate 
and  independent  department  of  the  state  government.  For 
reasons  indicated  in  the  similar  recommendation  in  the  report 
on  "banks",  it  is  believed  the  administrative  branch  of  the 
government  would  be  strengthened  by  the  adoption  of  the 
•recommendation. 

2  —  That,  as  a  bureau  of  the  department  of  trade  and  commerce, 

the  internal  organization  remain  as  at  present. 

The  inspector  should  be  named  by  the  director  of  the  de- 
partment, and  be  subject  to  the  regulations  of  civil  service. 
His  bond  should  be  for  a  sufficient  airwunt,  and  be  paid  by  the 
state.     Bonds  of  all  employes  should  be  paid  by  the  state. 

3  —  That  the  inspector  be  given  actual  power  and  funds,  as  well 

as  the  legal  authority  at  present  enjoyed,  to  conduct  the 
number  of  examinations  he  may  deem  necessary. 

This  would  include  an  increased  appropriation,  as  well 
as  possible  revisions  of  the  law. 

At  present  a  considerable  revenue  accrues  to  the  state 
by  reason  of  the  collection  of  a  fee  with  the  filing  of  the 
annual  report.  The  expenses  of  the  department  are  consider- 
ably less  than  the  total  of  these  and  other  fees  collected  by 
the  department.  For  example,  for  the  year  ending  June  30, 
19-18,  (the  latest  annual  report  available)  the  income  to  the 
state  from  this  department  was  $55,065.  Expenditures 
amounted  to  $41,490.    These  are  typical  figures. 

There  is  nothing  in  the  law  to  indicatei  that  the  fees  col- 
lected are  intended  to  defray  the  expenses  of  the  department. 
It  is  specifically  stated  (Sec.  684)  that  examinations  of  asso- 
ciations shall  be  paid  for  by  the  state,  except  under  the  recipro- 
cal arrangement  with  associations  of  other  states.  However,  as- 
suming that  the  statutory  fee  is  primarily  for  the  purpose  of 
defraying  the  expenses  of  this  department,  there  is  every  rea- 
son to  believe  that  there  should  remain  no  substantial  balance 
in  the  general  fund,  available  for  other  expenses  of  the  state. 
There  is,  in  fact,  no  necessity  for  the  activity  even  being  self- 
sustaining,  sbould  tbe  general  assembly. accept  that  the  service 
is  one  properly  to  be  undertaken  by  the  state.  Further,  there  is 
every  reason  for  sufficient  appropriation  to  enable  the  in- 
spector to  employ  a  staff,  sufficient  both  in  numbers  and  quali- 
lications,  to  afford  the  associations  the  number  of  examinations 
that  may  be  deemed  necessary  to  protect  the  public,  the  bor- 
rowers, stockholders,  and  the  associations.  Present  conditions 
flo  not  ]>crniit  sufficient  examining  and  follow-up,  due  to  ex- 


ON   ADMINISTRATIVE   REORGANIZATION  lol 

pansion  of  associations,  while  the  increase  in  staff  has  not 
kept  pace. 

4  —  That  the  inspector  include  in  his  annual  report  a  concise 

statement  of  the  preventive  work  done. 

As  with  the  supervision  of  banks,  (q.  v.)  one  of  the  most 
important  features  of  the  activity  of  the  department  is  the 
failures  and  losses  it  prevents,  through  aggressive  action  taken 
when  reports  indicate  a  weakened  condition  in  any  association. 
This  activity  is  of  such  importance  to  the  public,  and  requires 
so  much  time  and  intelligent  effort  on  the  part  of  the  inspector 
and  his  assistants,  a  record  of  it  should  be  made.  Thus  the 
governor,  and  ultimately  the  public,  would  be  better  apprised 
of  the  nature  and  value  of  the  sei-vice.  Such  information  also 
.  would  be  of  value  to  the  legislative  body,  aiding  them  to  de- 
termine upon  adequate  appropriation  for  the  service. 

5  —  That  the  feasibility  of  combining  the  staff  of  examiners  for 

banks  and  building  and  loan  associations  be  considered  by 
the  proper  administrative  officials  under  the  proposed  re- 
organization. 

While  it  is  agreed  that  the  two  classes  of  financial  insti- 
tutions are  different,  it  is  believed  the  examination  is  so  similar 
in  nature  that  the  same  examiner  could,  ordinarily,  qualify  for 
either  kind  of  examination.  Fxonomy  in  traveling  and  other 
expenses  should  result  under  this  plan,  allow  greater  shifting 
of  men  when  necessary,  and  yet  not  impair  the  quality  of 
work  done. 

ORGANIZATION 

Inspector  of  Bidldiny  and  Loan  Associations 

Charged  by  law  (G.  C.  674,  et  seq.)  with  duty  of  enforcing  the  laws 
regulating  the  operations  of  building  and  loan  associations,  (G.  C.  9643, 
et  seq.)     Has  general  supervision  over  all  work  in  connection  therewith. 

Chief  Clerk 

Supervises  the  detailed  work  of  the  office,  handles  general  cor- 
respondence, checks  and  analyzes  reports  of  examination  submitted  by 
examiners,  issues  to  the  association  examined  letter  of  directions  or  any 
instructions,  which,  after  approval  and  signature  of  the  inspector,  is 
transmitted  to  the  association  for  adjustment.  Checks  replies  to  such 
letters  to  ascertain  that  compliance  has  been  had.  Examines  constitutions 
and  by-laws  submitted  by  newly  incorporated  associations,  making  any 
necessary  suggestions  required  to  place  same  in  proper  shape;  maintain- 
detailed  records  of  assignment  of  examiners  and  examinations  made,  in- 


l82  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

corporations,  miscellaneous  data,  etc.,  and  handles  various  matters  which 
arise  from  time  to  time. 

Accountant  (Auditor)   (Grade  II) 

Most  important  function  is  auditing  of  annual  reports  as  filed  by  the 
different  associations  throughout  the  year,  checking  same  against  reports 
previously  filed  to  determine  correctness  of  report  last  submitted,  and 
pointing  out  any  existing  discrepancies  necessary  to  be  adjusted  in  order 
to  place  report  in  proper  balance,  (which  must  be  done  before  report  is 
accepted  and  filed.)  Receives  fees  paid  thereon  (G.  C.  691),  keeps  record 
of  filing  of  reports  and  fees  paid,  depositing  same  with  treasurer  of  state 
when  report  is  ready  for  acceptance,  and  handles  financial  matters,  pay- 
roll, requisitions,  vouchers,  etc.,  subject  to  approval.  Maintains  record 
of  expenditures  in  prescribed  form. 

Statistician 

Makes  abstract  of  financial  statement  of  annual  report  of  each  as- 
sociation filed  during  the  year,  assembles  statistical  tables  for  record  and 
publication,  and  performs  duties  of  mailing  clerk  and  such  others  as  are 
from  time  to  time  assigned. 

Correspondence  Clerk 

Handles  telephones,  makes  typewritten  copies  of  examination  reports 
(approximately  700  per  annum,)  performs  duties  of  file  clerk,  and  such 
others  as  may  from  time  to  time  be  required.     Does  stenographic  work. 

Deputy  Inspector,  Assistant  Deputy,  Examiners 

These  constitute  the  field  force,  and  are  engaged  throughout  the  year 
in  making  examinations  of  the  building  and  loan  associations  in  the  state. 
Following  the  examination,  in  each  instance  where  the  result  of  same 
indicates  such  procedure  proper,  holds  meetings  with  the  association's 
board  of  directors  for  puri)ose  of  presenting  such  matters  as  he  deems 
necessary,  and  submits  detailed  report  of  examination  and  action  taken  in 
connection  therewith. 


In  addition  to  the  foregoing  outline,  additional  work  is  performed 
from  time  to  time  as  deemed  necessary  or  advisable.  This  includes  as- 
sisting in  getting  out  annual  report,  reading  proof  thereof,  and.  in  brief, 
in  doing  those  things  which  tend  to  make  the  work  of  supervision  and 
regulation  ]>rocced  expeditiously  and  effectively. 


Co]>y  of  building  and  liKiii  laws,  copy  of  blank  annual  report,  a.-; 
re(|uircd  to  be  filed  with  department  by  building  and  loan  associations. 
and  copy  of  examination  blank  report,  as  used  by  examiners  in  reporting 
to  department,  herewith  submitted. 


STATE  DEPARTMENT  OF  HEALTH 

AND 

STATE  SANITORIUM  FOR  TUBERCULOSIS 
By  WILLIAM  H.  ALLEN 


STATE  DEPARTMENT  OF  HEALTH 

The  same  legislature  which  created  the  Joint  Legislative  Comniittee 
for  Administrative  Reorganization  passed  an  act  for  the  reorganization 
of  the  health  service.  This  new  act,  called  the  Hughes  Act,  provides 
for  joint  support  and  joint  control  of  county  or  special  district  health 
service  which  should  place  Ohio  second  to  no  other  state  in  its  provisions 
for  health  work. 

From  the  standpoint  of  organization  this  new  plan  should  be 
thoroughly  tried  out  before  Ohio  embarks  upon  a  new  venture  or  forces 
upon  the  department  the  organization  of  new  services.  The  present 
health  commissioner  understands  health  needs.  He  is  securing  the  co- 
operation of  professional  men  of  the  state  and  should  be  unhampered  and 
unqualifiedly  supported  during  the  organization  of  this  new  state-wide 
service  and  supervision.  For  the  commissioner's  own  suggestions  see 
his  letter  to.  your  committee,  page  8. 

Four  exceptions  are  suggested  for  the  double  reason  of  relieving 
other  departments  of  services  which  do  not  belong  to  them  and  will  not 
be  properly  attended  to  by  them,  and  of  giving  to  the  health  department 
duties  that  are  already  being  discharged  elsewhere  but  belong  properly 
to  it  and  that  will  easily  fit  at  once  into  the  new  health  law.  It  is 
recommended  that  four  services  be  transferred  to  the  department  of 
health  as  follows : 

1  —  The  bureau  of  vital  statistics  from  the  secretary  of  state. 

2  —  Inspection  of  hotels  from  the  fire  marshal. 

3  —  Food  and  dairy  division  from  the  department  of  agriculture. 

See  separate  report. 

4  —  Responsibility  for  printing  from  the  printing  commission,  re- 

garding which  your  committee   has   already   issued   a   special 
report  by  G.  C.  Cummin  of  our  office. 

Among  the  needs  which  must  soon  be  recognized  in  the  formal  or- 
ganization of  Ohio's  health  work  nineteen  deserve  special  mention  here. 

I  —  All  state  and  municipally  supported  institutions  should  be 
visited   at  least   once  a   year,   many   of   them   oftener,    by 

183 


184  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

the  State  health  department  and  their  sanitary  practices  and 
health  teaching  rigidly  inspected  and  frankly  described.  Where 
standards  are  not  adequate  to  protect  inmates  or  public,  the 
state  department  of  health  should  be  given  authority  and  put 
under  obligation  to  require  compliance  with  the  standard. 

This  suggestion  applies  to  the  industrial  schools,  reforma- 
tories, penitentiary,  prison  farm,  schools  for  the  blind  and 
deaf,  soldiers'  orphans,  county  children's  homes,  county  and 
state  normal  schools,  Wilberforce  normal  and  industrial  de- 
partment, the  three  universities,  state  sanatorium,  hospitals  for 
the  insane  and  other  state  and  county  institutions.  It  should 
also  extend  to  the  sanitary  conditions  of  the  State  House  and 
state  offices.  For  such  inspectional  work,  financial  provision 
should  be  made  in  the  department's  budget  to  the  small  extent 
that  this  will  be  necessary  after  the  various  health  districts  are 
thoroughly  organized  under  proper  full  tnv.2  health  officers  and 
state  department  supervisors.  In  making  these  inspections  the 
state  department  should  be  permitted  to  accept  as  its  own  the 
inspection  of  qualified  agents  working  for  other  state  depart- 
ments—  such  as  the  director  of  welfare  administration,  board 
of  charities,  university  research  bureaus,  etc.  —  with  respect  to 
any  institutions  not  subject  to  the  jurisdiction  of  the  co-oper- 
ating department. 

2  —  A  chance  to  review  the  questions  plsmned  for  the  various 

health  examinations  —  medicine,  and  special  practices  like 
osteopathy,  chiropractic,  dentistry,  nursing,  embalming  — 
should  be  given  to  the  department  to  msure  adequate  recog- 
nition of  preventive  hygiene.  This  will  be  easy  if,  as  sug- 
gested elsewhere,  the  state  department  of  public  instruction  is 
held  responsible  for  these  examinations.  If  the  present  boards 
are  not  abolished,  the  law  should  require  that  all  examinations 
be  viseed.  Furthermore  the  department  of  health  should  be 
expected  to  comment  after  the  examinations  are  over  upon 
the  progress  shown  or  not  shown  by  the  questions  in  the  exam- 
inations, the  answers  to  them  and  the  improvements  in  teach- 
ing which  they  reflect. 

3  —  A  training  school  for  health  officers  will  be  needed.    Ever}- 

effort  should  be  made  to  have  the  Ohio  State  University  or- 
ganize and  develop  such  a  school.  Columbus  city  health  work 
affords  ample  clinical  material  when  supplemented  by  the  state 
department's  control  records  and  laboratory  service.  The  in- 
itial co-operative  course  of  1919  set  a  good  pace  and  helped 
train  several  men  for  new  health-officerships.  It  was  under  the 
college  of  medicine  with  the  help  of  the  state  department  of 
health.     It  has  been  urged  that  an  affiliated  course  not  under 


ON    ADMINISTRATIVE   REORGANIZATION  T-^S 

the  college  of  medicine  would  be  better.     It  may  be  that  at 
first  a  separate  course  would  be  better.    But  much  larger  results 
should  be  possible  if  the  state  insists  upon  proper  execution  by 
the  college  that  is  training  physicians  and  should  be  more  and 
more  emphasizing  preventive  hygiene.    In  addition  to  trainmg 
at  Ohio  state  university,  it  will  be  advisable  to  orgamze  sec- 
tional field  classes,  preferably  under  the  educational  authorities 
acting  in  co-operation  with  the  department  of  health.     I    such 
co-operation  is  not  forthcoming,  the  state  department  of  health 
itself    should    arrange    such    extension    work.      Practitioners 
would  be  reluctant  even  if  they  had  the  time  to  go  away  for  a 
semester      They  will  be  willing  to  attend  institutes  through 
which  they  can  be  brought  up-to-date  in  preventive  hygiene. 
4- An  aggressive  interest  in  the  character  of  hygiene  instruc- 
tion in  the  public  schools  should  be   taken  by   the  health 
department.     It  cannot  force  reforms.     It  can  impel  them. 
In   Michigan   no   hygiene   or  physiology  text  may  be  taugh 
unless  one-eighth  of  the  text  is  given  to  character,  cost  and 
prevention    of    dangerous   communicable    diseases    and   unless 
such  portion  has  been  approved  by  the  health  commissioner. 
c_  Regional  and  state   conferences   in   the  interest   of  health 
promotion  should  be  a  regular  feature  of  the  state  depart- 
mentis  work. 
6 -The  state  department  of  health  should  be  an  analyzing  and 
truth-telling  agency  through  whose  publicity  the  public  will 
be    protected    from    ignorance    with    respect    to    health- 
menacing  beverages  and   drugs.     What   they   contain   and 
how  much  of   every  deleterious  element  should  be   told,  and 
over  and  over  again,  by  the  department's  publicity. 
7 -While  as  later  stated  the  state   sanatorium   for  tubercular 
patients  should  remain  under  the  direction  of  -'elffje  a^- 
.         ministration   the   state   department   of   health    shou  d   take 
a  special  interest  in  the  program  and  result  of   this  in- 
stitution,  tell   the   truth   about   its   methods,   make  helphal 
suggestions  to  it  and  do  all  in  its  power  to  keep  it  a  teach- 
ing agency  and  to  prevent  it  from  becommg  a  mere  tem- 
porary  hospital. 
8 -Social  hygiene,  the  need  for  it  and  pubHc  appreciation  of  it 
since  and  because  of  the  war  calls  for  an  aggressive  educational 
and  clinical  policy  by  the  state  board  of  health. 
Q_An   industrial   hygiene   service  which   wiU   be   educational, 
informative,    experimental,    stimulating,    should   be    in    the 
department's     plan.      It     should     have     special     emphasis 


l86  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

and  not  be  merely  a  side-line.  Laborers  and  employers  alike 
will  welcome  this  kind  of  assistance.  In  New  York  City  after 
a  trial  of  only  about  a  year  labor  organizations  were  so  con- 
vinced of  the  helpfulness  of  an  industrial  hygiene  bureau  to 
their  welfare  that  delegates  appeared  in  support  of  an  enlarged 
budget.  They  told  specifically  of  one  field  after  another  why 
the  public  should  study  unhealthy  employment  and  discover 
correctives. 

I  o  —  The  inspection  of  all  persons  who  have  to  handle  food  will 

become  a  practical  service  in  all  parts  of  the  state  after 
the  new  health  service  is  thoroughly  organized;  for  its  rigid 
and  equal  enforcement  the  state  department  will  be  held  re- 
sponsible. 

I I  —  Garbage  disposal,   sanitary  engineering,   safe  sanitation   in 

isolated  districts,  water  departments,  school  hygiene,  all 
call  for  expert  knowledge  and  aggressive  educational  work 
at  state  health  headquarters.  The  department  should  know 
whatever  is  known  anywhere  about  best  practices. 

1 2  —  Local  health  surveys  should  be  promoted  by  the  state  de- 

partment through  printed  instructions,  through  written  ad- 
vice, through  answers  to  questions,  through  standardized  ex- 
actions from  the  county  and  district  health  officers  and  through 
itinerant  surveyors  from  state  headquarters.  The  actual  field 
survey  work  can  be  put  on  a  self-supporting  basis  so  far  as 
the  state  is  concerned,  that  is,  the  localities  can  be  required  to 
pay  for  the  special  service  given  to  them  rather  than  to  the 
whole  state.  The  licensing  of  mid-wives,  the  state  survey  nec- 
essary to  locate  them  and  the  state  educational  campaign  nec- 
essary to  use  them  safely,  can  now  be  organized  under  the  new 
health  law  with  the  state  department  setting  the  standards  and 
enforcing  complete  registration. 

13  —  The    laboratory    division    will    inevitably    expand.      Health 

work  is  becoming  more  and  more  a  matter  of  exact  knowledge 
of  the  presence  of  deleterious  substances  in  foods  or  disease 
germs  in  the  air.  There  is  no  investment  which  pays  bigger 
dividends  than  prompt  examination  by  the  state  of  samples  of 
sputum,  throat  swabs,  suspected  milk,  suspected  water,  sus- 
pected cases  of  venereal  diseases,  etc.  Regional  laboratories 
will  become  necessary  and  practical  as  districts  are  organized. 
It  is  to  be  regretted  that  the  co-operation  with  the  Ohio  state 
university  which  was  lUKlcrtakcn  on  both  sides  in  the  hope 
that  classroom  instruction  and  state  health  work  would  both 
be  vitalized  and  helped  by  this  association  has  at  first  disap- 
pointed both  parties  and  been  discontinued.     As  the  need  de- 


ON    ADMINISTRATIVE   REORGANIZATION  187 

velops  for  additional  laboratory  examinations  and  for  other 
facilities  for  training  health  ofiicers,  it  will  doubtless  again 
seem  practical  and  highly  desirable  to  have  the  health  offices 
out  on  the  University  campus. 

14  —  Several   inspectional   services    needing   expansion   now    be- 

come easy  for  the  first  time  and  should  be  started  and 
supervised  by  the  state  department,  namely,  inspection  ot 
hotels,  summer  hotels,  railroad  stations,  excursion  boats,  sum- 
mer resorts,  public  grounds  and  meeting  places,  including  pub- 
licly managed  buildings  like  court  houses,  city  halls,  jails,  re- 
pair shops,  etc. 

15  —  Health     publicity     needs     considerable     development.     The 

syndicated  health  lessons  that  are  now  appearing  in  many  Ohio 
papers  offering  information  and  advice  should  be  signed  not  by 
the  U.  S.  Public  Health  Service  but  by  the  state  health  de- 
partment, or  at  least  Ohio  readers  should  be  referred  to 
Ohio's  own  state  department. 

16  —  Plans  for  all  public  buildings  should  be  reviewed  for  con- 

formity to  sanitary  requirements  by  county  and  district 
health  officers  for  county  and  local  buildings  and  by  the  state 
officers  for  state  buildings.  The  state  commissioner  could 
hardly  have  approved  the  erection  of  the  juvenile  research 
dormitory  now  nearing  completion  with  only  two  showers  for 
bathing  100  children.  In  working  out  this  inspection  service 
the  department  should  be  authorized  to  establish  in  the  health 
code  requirements  which  will  shift  responsibility  for  detailed 
analysis  of  plans  to  the  building  department,  but  which  will 
also  establish  penalties  for  failing  to  comply  with  these  require- 
ments. 

17  —  A  round  robin  of  high  spot  health  facts  should  be  circu- 

lated among  health  ofiiicers  and  newspapers  oftener  than 
is  possible  through  a  monthly  bulletin.  Special  articles 
should  be  prepared  such  as  have  been  prepared  and  in  addition 
short  health  nuggets  for  the  many  daily,  weekly  and  monthly 
papers  and  journals  including  trade  journals  which  will  wel- 
come such  material  if  specially  prepared  for  them. 

18  —  Annual  reporting  by   county  and  city  officers   and  by   the 

state  department  calls  for  easily  made  but  important  ad- 
ditions. The  state  department  is  in  position  to  demand 
adequate  and  meaning-full  reporting  from  its  various  branches 
and  all  independent  health  boards.  It  should  flash  back  to 
each  community  the  significance  of  that  community's  reports 
when  read  against  a  background  of  state  reports.     It  should 


igS,  KKl-OKT   t)F   JOINT    I.I'.CISLATIVE    COMMITl^EE 

rank  every  city  with  respect  to  each  of  the  important  tests  of 
heahh  progress,  the  proportion  of  school  children  examined 
and  re-examined,  the  proportion  whose  physical  defects  are 
corrected,  the  frequency  of  milk  shop  inspections,  the  paucity 
of  transmissable  disease,  the  number  and  proportion  of  deaths, 
the  use  made  of  the  state  laboratories  for  examining  samples 
of  foods,  throat  swabs,  sputum  and  other  smears ;  the  high  or 
low  scoring  of  dairy  farms,  restaurants,  food  shops,  etc. 
19  —  The  monthly  bulletin  can  easily  be  made  far  more  help- 
ful at  no  increase  in  cost.  Shorter  articles,  more  live  testi- 
mony and  high  spots,  more  questions  and  answers  will  na- 
turally take  their  pages  after  the  enlarged  program  has  found 
full  swing.  The  present  commissioner  showed  by  his  work 
in  Virginia  before  coming  to  Ohio  that  he  is  adept  in  using 
the  best  methods  of  giving  the  public  little  by  little  and  always 
a  little  more  usable  health  information. 

In  forecasting  the  development  of  state  health  activities  effort 
has  been  made  to  feature  the  auditing 'and  educational  functions  of 
a  state  health  department.  Getting  done  is  its  purpose.  The  actual 
doing  or  actual  managing  is  the  responsibility  of  other  agencies. 
Nothing  should  be  given  to  a  state  health  department  which  will 
divert  its  attention  from  rigid  inspection  and  unmitigated  truth- 
telling  about  the  gaps  between  what  is  done  and  what  should  be 
done  for  the  promotion  of  public  health,  including  particularly  the 
education  of  the  whole  public  in  the  science  and  art  of  personal  and 
public  hygiene. 


LETTER  FROM  COMMISSIONER  OF  STATE  DEPARTMENT 
OF  HEALTH 

Under  date  of  October  nth,  1919,  Dr.  A.  W.  Freeman,  commissioner 
of  the  state  department  of  health,  addressed  the  following  communication 
to  the  secretary  of  the  joint  legislative  committee  on  administrative  re- 
organization : 

"I  have  received  and  carefully  considered  your  very  kind  letter  of 
September  30th,  and  wish  to  assure  you  that  we  desire  to  co-operate  with 
you  in  every  possible  way  in  your  work.  The  matter  has  been  submitted 
to  the  public  health  council  and  I  have  been  directed  to  answer  the 
questions  propounded  in  your  letter  as  follows: 

"i.  We  do  not  think  it  at  all  wise  or  expedient  to  bring  the  various 
examining  boards  under  the  jurisdiction  of  this  department. 

"2.  The  changes  made  by  the  last  legislature  in  the  health  laws  of 
the  state  were  so  extensive  ihal   it   will  take  at   least  two  years  for  the 


ON     /VDMINlSTkAllNI'.    KI^OKC.A  N  IZATION  ]8i) 

organization  now  under  way  to  be  completed  and, placed  in  efficient  op- 
eration. We  are,  therefore,  of  opinion  that  no  further  radical  changes 
should  be  made  in  the  health  laws  until  this  has  been  accomplished.  Our 
plans  for  future  development  include,  among  other  things,  the  develop- 
ment of  a  complete  and  efficient  S3'stem  of  physical  supervision  of  school 
children  and  a  program  of  child  welfare  of  state-wide  application.  We 
are  also  preparing  a  plan  for  the  more  efficient  supervision  of  the  en- 
vironment and  physical  condition  of  the  very  large  body  of  industrial 
workers  of  the  state.  For  these  additional  functions,  the  Hughes  bill 
was  the  necessary  preliminary  step. 

"3.  The  additions  made  by  the  present  assembly  to  the  staiT  of  this 
department  will  enable  us  within  the  near  future  to  undertake  a  com- 
plete, and,  we  thmk,  adequate  sanitary  supervision  of  all  charitable, 
correctional  and  educational  institutions  under  the  control  of  the  state. 
The  local  organizations  under  the  Hughes  bill  should  be  able  to  under- 
take the  supervision  of  institutions  other  than  those  of  the  state. 

"4.  The  work  of  coordinating  this  department  with  other  state 
institutions  in  physical  examination  of  employes  and  physical  education 
of  students  will  require  the  addition  of  a  personnel  for  this  purpose  to 
our  stafif.    This  is  a  matter  of  appropriation  rather  than  of  legislation. 

"5.  We  are  of  opinion  that  there  are  imperative  reasons  why  the 
department  has  to  be  separate  and  apart  from  any  other  department  of 
the  state  government  and  shall  be  glad  to  present  evidence  in  support  of 
this  opinion  at  such  a  time  as  the  committee  sees  tit. 

"In  addition  to  these  specific  answers  to  your  questions,  we  will 
call  the  attention  of  your  committee  to  several  matters  in  which  we  believe 
efficiency  may  be  promoted  by  a  rearrangement  of  the  present  distri- 
bution of  function  in  the  state  government: 

"i.  The  bureau  of  vital  statistics,  which  collects,  records  and  studies 
births  and  deaths  in  the  state  of  Ohio,  is  at  present  in  the  department 
of  the  secretary  of  state.  The  work  of  this  bureau  has  no  connection 
whatever  with  that  of  the  remainder  of  the  secretary  of  state's  office,  but 
has  a  vital  and  important  connection  with  all  work  carried  on  in  this 
department.  In  addition,  the  present  arrangement  necessitates  the  main- 
tenance of  two  statistical  staffs,  since  we  are  compelled  to  maintain  a 
statistical  department  for  the  recording  and  study  of  cases  of  com- 
municable diseases.  We  believe  that  public  welfare  would  be  promoted 
by  a  transfer  of  the  bureau  of  vital  statistics  to  this  department. 

"2.  This  department  has,  for  a  number  of  years,  maintained  a 
division  of  industrial  hygiene  which  has  carried  on  valuable  research 
work  in  the  problems  of  industrial  diseases.  The  industrial  commission, 
however,  through  its  bureau  of  workshops  and  factories,  is  charged  with 
tl'ie  enforcement  of  all  laws  regulating  the  health  of  workers,  and  is 
provided   with  a  corps  of  inspectors  for  that  purpose.     The  industrial 


190  REPORT  OF   JOINT   LKGISLATIVE   COMMITTEE 

commission,  however,  is  without  a  technical  staff.  It  would  seem  that 
the  state's  duty  to  protect  the  health  of  industrial  workers,  both  through 
the  control  of  environment  and  through  the  actual  physical  supervision 
of  the  workers  themselves,  is  too  vital  a  matter  to  be  operated  as  a  minor 
branch  of  a  department  concerned  primarily  with  the  prevention  of  in- 
dustrial accidents.  Accident  prevention  might  presumably  be  one  of  the 
functions  of  an  activity  designed  primarily  to  promote  the  health  of  in- 
dustrial workers.  Such  an  activity  should  be  under  technical  supervision, 
and  in  our  opinion  might  well  be  under  the  jurisdiction  of  this  depart- 
ment. 

"3.  The  blind  commission,  in  addition  to  its  duty  of  educating  and 
caring  for  those  already  blind,  has  for  several  years  maintained  a  corps 
of  nurses  for  the  prevention  of  blindness.  This  work  runs  exactly 
parallel  with  the  prevention  of  blindness  work  maintained  by  this  depart- 
ment and  results  in  a  waste  of  effort,  which  is  not  in  accordance  with  the 
principles  of  good  government.  Here  again  we  think  the  whole  work 
of  blindness  prevention  should  be  centered  in  one  administrative  juris- 
diction. 

"4.  The  fish  and  game  commission  of  the  state  board  of  agriculture 
has  within  recent  years  entered  largely  into  the  question  of  stream  pollu- 
tion as  affecting  fish.  This  department's  division  of  engineering  has  for 
many  years  been  charged  with'the  enforcement  of  laws  regarding  stream 
pollution  for  the  prevention  of  nuisances  and  the  protection  of  health. 
The  two  problems  are  precisely  the  same,  and  control  should  be  in  a 
single  department. 

"5.  The  activities  of  the  dairy  and  food  division  of  the  state  board 
of  agriculture  are  concerned  almost  altogether  with  questions  affecting 
health.  This  department  already  carries  on  all  laboratory  work  for  the 
division,  and  with  its  force  of  district  supervisors,  working  in  co-opera- 
tion with  the  local  health  officers,  under  the  new  organization,  could 
probably  carry  on  the  work  as  efficiently  as  at  present  at  a  considerable 
saving  in  expense. 

"6.  The  last  session  of  the  legislature  created  a  division  of  hotel 
inspection  in  the  department  of  the  state  fire  marshal.  The  duties  of 
this  division,  while  including  certain  matters  of  fire  protection,  are  in  a 
very  large  measure  concerned  with  sanitation  and  health  protection. 
Here  again  it  would  seem  that  efficiency  and  economy  would  dictate  that 
the  sanitary  matters  be  delegated  to  that  part  of  the  state  government 
maintaining  a  technical  personnel  qualifietl  to  carry  on  the  work  effi- 
ciently. Inspection  of  hotels  for  fire  risk  is  properly  tlic  work  of  the 
fire  marshal's  office.  Inspectio-^.  for  ])uri>o?es  of  hvalth  protcctitni  can 
best  be  carried  on  tln'ough  the  district  suiicrvisors  of  the  state  department 
of  health,  working  in  co-ooj)eratiiin  with  the  new  local  health  organiza- 
tion. 


ON    ADMINISTRATIVE   REORGANIZATION  I9I 

"These  are  the  outstanding  matters  affecting  this  department  which, 
we  think,  should  receive  attention  at  the  hands  of  your  committee  in 
addition  to  such  studies  as  the  committee  may  desire  to  make  as  a  part 
of  its  general  plans." 


THE    STATE    SANATORIUM    FOR   TUBERCULOSIS 

At  present  little  is  known  by  the  public  of  the  state  sanatorium  at 
Mt.  Vernon.  In  a  general  way,  people  know  that  Ohio  has  such  an 
institution. 

The  auditor's  report  last  pubHshed  states  that  on  June  30,  1918,  it 
had  164  patients,  an  average  of  172  patients  the  year  before  and  had 
spent  $104,000,  or  $605.00  per  capita. 

The  Ohio  general  statistics  for  the  same  year  shows  that  the  in- 
stitution had  160  at  the  beginning  of  the  year,  besides  1 1  on  temporary 
leave,  and  received  430  patients,  handling  thus  601  men  and  women  dur- 
ing the  year.  It  discharged  432  ;  61  with  the  disease  arrested  or  apparently 
arrested,  97  with  the  disease  checked,  104  improved,  164  unimproved,  six 
as  non-tuberculous;  one  died. 

The  Ohio  board  of  administration,  which  administers  this  san- 
atorium, reports  that  the  hospital  has  been  running  since  1909 ;  that  it  is 
on  the  cottage  plan,  has  355  acres,  is  valued  at  $768,000,  produced 
$25,000  on  the  farm  in  1918,  with  172  patients  and  62  employees.  While 
it  says  that  only  cases  in  the  incipient  stage  are  admitted,  it  also  reports 
that  but  84  of  433  admissions  were  incipient  cases  that  year,  196  moder- 
ately advanced,  147  advanced,  including  84  so  far  advanced  active  cases 
that  they  were  discharged  as  unimproved  within  one  month.  Accounting 
for  168  remaining  July  ist,  1918,  the  board  shows  that  46  of  88  counties 
had  no  patients;  18  others  had  one  patient;  five  had  2;  four  had  3;  four 
had  10  or  more.  Summit  'ii,  Mahoning  13,  Hamilton  22,  and 
Cuyahoga  27. 

During  the  previous  year  29  counties  had  sent  to  or  received  from 
the  sanatorium  no  patients. 

In  other  words,  the  sanatorium  is  not  state  in  its  constituency. 

What  it  is  able  to  do  with  400  patients  a  year,  out  of  a  total  of  35,000 
believed  to  have  tuberculosis  in  one  of  its  stages,  is  but  a  drop  in  the 
bucket. 

As  a  curative  institution  it  cannot  justify  the  money  and  energy 
spent  upon  it. 

As  an  educational  institution  it  might  be  of  tremendous  value  to  the 
state.  For  example,  it  is  worth  a  great  deal  to  locate  the  physicians  who 
send  343  moderately  advanced  and  advanced  cases  to  a  place  that  re- 
ceives only  incipient  cases.  It  is  also  important  to  know  the  six  phy- 
sicians who  sent  six  non-tuberculous  patients  to  a  hospital  for  treating 


192  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

tuberculosis.  Again,  it  is  of  inestimable  value  to  be  teaching  even  400 
representatives  of  even  39  counties  that  tuberculosis  is  curable  and  that 
there  is  a  way  of  living  that  will  put  a  tuberculous  patient  back  on  his 
feet  without  menacing  the  families  or  friends  with  whom  he  lives. 

As  at  present  conducted.  hoAvever.  there  is  little  militant  educational 
work  emanating  from  the  sanatorium.  It  is  simply  another  state  insti- 
tution. That  it  is  an  abused  institution,  or  at  least  unimaginatively  used, 
is  shown  from  the  fact  that  fewer  than  (.nc-fifth  of  its  patients  are  of 
the  class  for  whom  it  is  intended. 

So  important  is  it  to  have  aggressive  educational  work  done  by  this 
school-sanatorium,  that  there  are  those  who  believe  it  should  be  trans- 
ferred from  the  board  of  administration  or  director  of  welfare  adminis- 
tration to  the  state  department  of  health  whose  business  it  is  to  educate 
and  re-educate.  And  it  is  held  that  if  the  state  commissioner  of  health 
were  responsible  for  such  a  sanatorium,  he  would  have  the  motive  for 
making  educational  use  of  its  experience.  He  would  not  only  find  out 
who  the  physicians  are  who  do  not  know  how  to  diagnose  or  what  time  to 
get  advance  cases  into  a  hospital  for  incipient  cases  only  and  would  do 
educational  work  with  them.  He  would  print  folders  descriptive  of  the 
cures  completed  at  the  institution  and  the  larger  number  of  cases  sent 
back  to  their  homes  improved  in  spite  of  the  advanced  stage  of  the  dis- 
ease at  time  of  admission. 

At  first  such  would  undoubtedly  be  the  result  of  a  transfer.  The 
mere  fact  that  it  was  a  new  obligation  would  key  up  the  state  commisioner 
of  health  and  council  of  health  to  a  big  program. 

The  danger  of  such  a  transfer  lies  in  the  fact  that  it  violates  a  prin- 
ciple which  we  have  repeatedly  urged,  that  the  officers  or  agencies  whose 
business  it  is  to  criticize  and  educate  should  not  be  required  also  to 
manage.  This  theory  admits  the  danger  that  persons  who  live  in  glass 
houses  will  not  wish  to  thrown  stones  and  that  health  officers  conscious 
of  hampering  conditions  and  inefficiencies  in  their  own  management  will 
be  reluctant  to  insist  npOn  cis  high  standards  and  as  frank  publicity  of 
defects  in  other  institutions  as  when  free  to  give  their  whole  thought  to 
holding  up  standards  and  advertising  needs.  This  argument  with  one 
or  two  supplementary  arguments  was  effectively  stated  in  a  letter  to  your 
committee  by  Mr.  Robert  G.  Paterson,  formerly  executive  secretary  of 
the  Ohio  state  anti-tuberculosis  society,  as  follows: 

"It  has  seemed  to  me  that  the  state  should  have  in  the  state  de- 
partment of  health  a  tuberculosis  man.  who  will  devote  his  time  to  the 
task  of  endeavoring  to  standardize  so  far  as  possible  the  work  being  done 
by  the  hospitals  already  established  ;and  secondly,  to  keep  consistently  on 
the  problem  of  the  further  establishment  of  new  hospitals  in  unorgan- 
ized territory. 

"The  fundamental  weakness,  as  you  arc  undoubtedly  aware,  in  our 
state  work  is  the  slighting  of  the  fundamental  ground   work   of  public 


ON    ADMINISTRATIVE    REORGANIZATION  193 

health  work ;  the  unwillingness  to  expend  a  sufficient  amount  of  money  on 
statistics  and  records  and  their  interpretation  as  a  basis  for  the  develop- 
ment of  a  state  program.  This  one  thing  seems  to  me  to  be  the  most 
needed  development  in  our  whole  public  health  field  in  Ohio. 

"Answering  your  specific  questions  I  do  feel  that  the  state  sanator- 
ium, at  Mt.  Vernon,  should  be  under  the  Ohio  board  of  administration 
rather  than  under  the  state  commissioner  of  health.  While  it  is  true 
that  the  state  sanatorium  is  possibly  the  only  health  institution  operated 
by  the  state,  nevertheless  it  seems  to  me  it  is  an  institution  for  curative 
purposes  and  lends  itself  to  the  same  routine  of  control  management  as 
do  the  other  institutions  in  the  state. 

"The  state  department  of  health  should  devote  its  efforts  to  the 
preventive  and  educational  sides  of  public  health  work  rather  than  to  deal 
with  individual  cases. 

"The  main  disadvantage  that  I  see  is  that  if  the  legislature  should 
place  the  state  sanatorium  under  the  control  of  the  state  department 
of  health,  then  naturally  the  budget  of  the  state  department  of  health 
would  be  divided  into  two  parts,  one  for  the  department  proper,  and  the 
other  for  the  operation  and  maintenance  of  the  state  sanatorium.  The 
total  amount  of  money  appropriated  to  the  state  department  of  health 
then  would  be  very  large  indeed.  There  would  be  the  tendency  to  con- 
fuse the  issue  on  the  part  of  the  people  and  we  would  not  be  able  to  secure 
the  needed  additional  appropriation  for  preventive  work. 

"Furthermore,  institutions  are  much  more  prone  to  receive  criti- 
cisms, justly  or  unjustly,  than  are  the  other  departments  of  the  state 
government.  An  attack  on  the  institution,  if  it  were  under  the  control 
of  the  state  department  of  health,  might  hinder  the  other  work  which 
the  department  might  be  doing. 

"My  own  opinion  is  that  the  preventive  work  which  the  state  depart- 
ment of  health  is  doing  is  much  more  important  ultimately  than  the 
curative  work  which  the  state  sanatorium  is  doing  and  that  the  two 
phases  of  public  health  work  should  not  be  confused  if  it  can  be  avoided." 

While  leaving  the  state  sanatorium  where  it  will  have  the  benefit 
of  skilled  institutional  management,  three  steps  in  internal  organization 
are  needed  in  order  that  the  sanatorium  shall  do  what  it  was  intended 
to  do. 

T  —  The  state  commissioner  of  health  should  be  required  to 
report  to  the  whole  state  in  what  respects  if  at  all  the  san- 
atorium is  not  being  properly  conducted  as  a  hospital;   is 

not  receiving  the  patients   for  whom   it  was  erected ;  is  not 
learning  and  spreading  broadcast  the  lessons  from  its  own  ex- 
perience  within   the   institution  and   with   the   districts   which 
furnish  patients. 
13 


194  RETORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

2  —  The   director   of  welfare   institutions   should   have    one   or 

more  officers  always  studying  tuberculosis  in  sdl  institutions 
and  in  the  sanatorium  and  flashing  back  to  the  state  the 
best  practices  in  each  institution,  the  needs  of  the  whole  state  as 
reflected  in  the  institutions,  and  lessons  learned  by  them. 

3  —  The  sanatorium  itself  should  be  organized  as  primarily  a 

training  school  for  patients,  their  home  friends  and  em- 
ployees and  the  public  mind.  From  superintendent  to 
nurse  and  humblest  employee  in  such  a  sanatorium  the  attitude 
of  teacher  should  be  required.  The  reports  should  be  educa- 
tional, including  the  announcements  of  what  the  sanatorium 
oflFers. 

The  atmosphere  should  be  of  the  confidence  and  hopefulness 
that  modern  knowledge  about  the  causes  and  cures  of  tubercu- 
losis justifies. 


BUREAU  OF  VITAL  STATISTICS 

By  WILLIAM  H.  ALLEN 


It  is  recommemled  that  the  bureau  of  vital  statistics  which  is  now 
in  the  office  of  the  secretary  of  state  be  transferred  to  the  state  depart- 
ment of  health. 

The  purpose  of  recording  births  and  deaths  is  not  to  satisfy  an 
antiquarian  interest  or  even  to  help  settle  personal  or  family  problems. 
One  reason  for  such  records  is  to  settle  questions  about  parentage,  owner- 
ship of  property,  liability  to  military  service  and  compulsory  school  at- 
tendance, right  to  vote,  etc.  For  such  ends  very  simple  records  are  re- 
quired. 

In  emphasizing  heie  the  health  reasons  for  vital  statistics  it  is  not 
intended  to  minimize  any  or  all  of  the  following  twelve  reasons  given 
by  the  U.  S.  Public  Health  Service  for  a  complete  registering  of  births : 

1  —  To  establish  identity. 

2  —  To  prove  nationality. 

3  —  To  prove  legitimacy. 

4  —  To  show  when  the  child  has  the  right  to  enter  school. 

5  —  To  show  when  the  child  has  the  right  to  seek  employment  under 

the  child  labor  law. 

6  —  To  establish  the  right  of  inheritance  to  property. 

7  —  To  establish  liability  to  military   duty,  as  well  as  exempttion 

therefrom. 

8  —  To  establish  Ihe  right  to  vote. 

g  —  To  qualify  to  hold  title  to,  and  to  buy  or  sell  real  estate. 

10  —  To  establish  the  right  to  hold  public  office. 

11  —  To   prove    the    age   at   which    the   marriage   contract   may    be 

-entered  into. 

12  —  To  make  posihle  statistical  studies  of  health  conditions. 

The  only  purpose  which  justifies  the  great  expense  of  time  and 
money  involved  in  keeping  a  complete  modern  file  of  birth  and  deaths  — 
with  all  the  other  information  called  for  on  certificates  as  to  names  of 
parents,  residents,  race,  occupation,  etc.  —  is  to  help  the  state  (i)  study 
its  health  problems,  (2)  learn  whether  forces  are  at  work  which  menace 
the  health  and  life  of  its  citizens,  and  (3)  enable  its  health  engineers  and 
other  social  engineers  to  take  steps  for  increasing  human  vitality. 

195 


196  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

None  of  these  purposes  can  be  adequately  served  so  long  as  Ohio 
continues  to  entrust  the  duty  of  collecting  vital  statistics  to  an  elective 
cflticer,  the  secretary  of  state,  who  has  no  administrative  use  for  this  in- 
formation. According  to  section  198  of  the  General  Code  the  secretary 
of  state  is  now  charged  with  prescribing  methods,  forms  and  blanks  for 
securing  registration  of  births  and  deaths. 

Section  199  requires  him  to  appoint  a  registered  physician  and  a 
competent  statistician,  but  in  no  way  prescribes  the  elements  of  trainiiii^ 
and  experience  which  constitute  competence  in  a  vital  statistician. 

The  vital  statistician  and  the  vital  statistics  belong  in  the  health  de- 
partment where  there  is  constant  need  for  hem. 

It  is  further  recommended  that  all  payments  received  from  the  United 
States  census  bureau  for  sending  to  it  vital  statistics  from  Ohio  be  paid 
to  the  state  department  of  health  and  not  to  the  vital  statistician  or  to  any 
other  employee  and  be  then  sent  to  the  state  treasurer  or  retained  as  a 
rotary  fund  or  experimental  fund  to  be  budgeted  and  acocunted  for  by 
the  state  department  of  health. 

For  the  last  five  years  these  fees  paid  to  state  employees  have  ag- 
gregated $20,000.  For  the  last  fiscal  year  they  totalled  $5,800  or  3  cents 
each  for  1 16,225  births  and  3  cents  each  for  76,285  deaths.  The  purpose 
of  the  federal  government  in  making  such  payment  is  to  insure  completest 
possible  registration  for  guidance  of  the  whole  country.  The  payment, 
however,  should  be  made  to  the  state  of  Ohio  and  not  to  any  employee. 
No  human  being  should  have  a  personal  pecuniary  interest  in  reporting 
a  large  number  of  deaths.  It  is  contrary  to  the  policy  of  the  state  of 
Ohio  to  leave  fees  in  the  hands  of  any  official  or  employee,  or  to  have 
salaries  depend  upon  fees.  It  is  not  necessary  to  restate  the  reasons 
for  paying  service  what  it  deserves  and  taking  to  the  state  what  its  own 
growth  in  business  brings  it  as  revenue. 

For  the  federal  bureau  of  census  the  chief  statistician  for  vital 
statistics  has  written  to  vour  committee  justifying  the  payment  to  an 
individual  ratlier  than  to  a  state  department  as  follows: 

"There  should  be  some  one  indivi'lual  responsible  to  the 
Census  Bureau.  To  get  the  best  results  it  is  best  to  authorize, 
so  far  as  possible,  the  registrar  or  his  assistant  who  is  in  closest 
touch  or  in  control  of  these  certificates  in  the  state  or  local  office, 
for  he  knows  the  most  about  them  and  is  bound  to  send  in  as 
accurate  data  as  i)ossiblc.  In  some  cases  authorized  transcribers 
are  able  either  through  overtime  work  themselves  or  by  em- 
ploying members  of  their  families,  to  suiiplement  all  too  meagre 
.salaries  received  from  the  states.  The  policy  of  the  P.ureau 
of  the  Census,  however,  is  to  authorize  the  individual  recom- 
mended by  the  executive  head  of  the  state  board  of  health, 
(or  in  Ohio,  the  'secretary  of  state).'' 

The  argument  is  not  convincing.  Ohio,  not  an  irresponsible  en> 
ployee,  should  guarantee  the  accuracy  and  ])roniptness  of  records. 


ON    ADMINISTRATIVE   REORGANIZATION  197 

To  effect  the  two  sugi^ested  changes  no  constitutional  amendment  is 
necessary.  The  legislature  may  by  statute  pass  the  law  necessary  to 
transfer  this  service  form  a  department  which  is  not  ecjuipped  to  make 
public  use  of  this  information,  the  secretary  of  state,  to  the  department 
v.hich  needs  the  information  every  day.  the  state  department  of  health. 


STATE  HIGHWAY  DEPARTMENT 

By  GAYLORD  C.  CUMMIN 


The  statutes  of  Ohio  make  provisions  summarized  in  thirteen  ex- 
cerpts from  the  General  Code  as  follows : 

I.  There  shall  be  a  state  highway  department  for  the  purpose  of 
affording  instruction,  assistance  and  cooperation  in  the  con- 
struction, improvement,  maintenance  and  repair  of  the  public 
roads  and  bridges  of  the  state  *  *  *  jhg  .governor  with 
the  advice  and  consent  of  the  senate  shall  appoint  a  state 
highway  commissioner  who  shall  serve  for  a  term  of  four 
years  unless  sooner  removed  by  the  governor   (G.  C.  §1178.) 


J£^/ecfo?"ai^e~ 


^i/er/207: 


O,.  C/er^A:. 


The  small  circles  indicate  the  surveyors  in  different  counties  of  the  state  who 
have  cliarRC,  under  the  state  highway  commissioner,    of    the   local    work   on    roads. 

198 


ON    ADMINISTRATIVE    REORGANIZATION 


199 


(xo7/err20-r 


1 2)/recl^ar  afpuM'cJ1^4. 
and  Cor?<seri/a&on. 


{-re^T.i/vo 


I        co/yst.       I 


■Siaflf: 


\-Ij^ne 


The  squares  numbered  from  1   to  9  represent  division  engineers. 
The  smaller  squares  indicate  inspectors,  the  number  to  be  determined   by  the 
needs  of  the  service. 

The  broken  lines  indicate  possible  future  supplementary  service. 

2.  *     *     *     The    governor    shall    appoint    four    qualified    electors 

*  *  *  to  act  as  an  advisory  board  to  the  state  highway 
commissioner.  *  *  *  The  members  of  this  board  shall 
serve  without  compensation  but  shall  receive  their  necessary 
expenses  incurred  in  the  discharge  of  their  duty.  *  *  * 
(G.  C.  §1231-5.) 

3.  Regular  meetings  of  the  highway  advisory  board  shall  be  held 

at  least  once  a  month  or  oftener  if  necessary  *  *  * 
Special  meetings  may  be  called  by  the  president  of  the  board 
or  by  the  state  highway  commissioner.     (G.  C.  §1231-8.) 

4.  No  act  of  the  state  highway  commissioner  ( i )  designating  inter- 

county  highways  or  main  market  roads  or  changing  existing 
inter-county  highways  or  main  market  roads;  (2)  granting 
any  applications  for  aid  from  any  appropriation  by  the  state 
for  the  construction,  improvement,  maintenance  or  repair  of 
inter-county  highways  or  main  market  roads  or  any  other 
fund  created  by  the  state  for  highway  purposes;  (3)  award- 


200  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

ing  or  entering  into  a  contract  for  the  construction,  improve- 
ment, maintenance  or  repair  of  any  inter-county  highway  or 
main  market  road ;  (4)  purchasing  any  material,  machinery, 
tools  or  euipment  for  road  improvement;  (5)  entering  into 
an  agreement  with  the  federal  government  relative  to  the 
securing  of  federal  aid  for  road  construction;  (6)  or  desig- 
•  nating  an  engineer  other  than  the  county  surveyor  to  have 
charge  of  the  roads  and  bridges  within  any  county  under  the 
control  of  the  state,  shall  be  valid  *  *  *  until  such  act 
has  been  approved  by  the  highway  advisory  board.  *  *  * 
(G.  C.  §1231-9) 

5.  The  highway  advisory  board  shall  examine  into  the  organization 

and  management  of  the  department  and  make  recommenda- 
tions to  the  state  highway  commissioner  as  to  such  organiza- 
tion and  management  *  *  *  ^j^^j  equitable  distribution 
of  funds  among  the  several  communities  of  the  state.  (G.  C. 
§1231-10) 

6.  The  county  surveyor  shall  have  charge  of  all  highways,  bridges 

and  culverts  within  his  county  under  the  control  of  the  state 
unless  another  engineer  be  appointed  for  that  purpose  by 
the  state  highway  commissioner  *  *  *  When  the  county 
surveyor  has  charge  of  the  highways,  bridges  and  culverts 
of  his  county  under  control  of  the  state  an  amount  equal  to 
one-fifth  of  his  salary  shall  be  paid  by  the  state  *  *  * 
upon  warrants  *  *  *  against  the  state  highway  im- 
provement fund     *     *     * 

If  an  engineer  other  than  the  county  surveyor  be  ap- 
pointed *  *  *  the  salary  provided  by  law  for  the  survey 
of  each  county  shall  be  decreased  by  an  amount  equal  to  one- 
fifth  thereof.     *     *     * 

The  county  surveyor  shall  perform  such  duties  in  ref- 
erence to  the  highways,  bridges  and  culverts  of  his  county 
under  the  control  of  the  state,  as  may  be  prescribed  by  law 
.or  by  the  state  highway  commissioner.     (G.  C.  §7182.) 

7.  If,  in  the  ojiinion  of  the  state  highway  commissioner,  the  county 

surveyor  *  *  *  j^  not  observing  the  instructions  of  the 
state  highway  commissioner,  or  is  neglecting  his  duties  with 
respect  to  highways,  bridges  and  culverts  within  his  county 
and  under  the  control  of  the  state,  the  state  highway  com- 
missioner may  designate  any  competent  engineer  to  have 
charge     *     *     *.      (G.   C.   §7185.) 

8.  *     *     *     The  county  surveyor  shall  designate  one  of  his  dep- 

uties as  county  maintenance  engineer.  Such  deputy  *  ♦  * 
to  have  charge  of  all  road  maintenance  and  repair  work  car- 


ON    ADMINISTRATIVE    REORGANIZATION  20I 

ried   forward  under  the  supervision  of  the  county  surveyor 

*  *  *  (G.  C.  §2788-1.)  (See  Sec.  7182  G.  C.  for  powers 
of  county  surveyor.) 

g  *  *  *  The  state  highway  commissioner  may  employ  such 
assistants  as  are  necessary  to  prepare  such  plans  and  surveys 
and  also  such  superintendents  and  inspectors  as  may  be  neces- 
sary in  the  construction  of  such  improvement.  *  *  ^ 
(G.  C.  §1219.) 

TO.  The  state  highway  commissioner  *  *  *  shall  have  tlie 
power  to  purchase  such  equipment  and  materials  *  *  * 
as  may  be  deemed  necessary  to  execute  any  work  on  such 
main  market  roads  *  *  *  jg  authorized  to  sell  either  at 
private  sale  or  public  sale  *  *  *  any  machinery,  tools  or 
equipment    that    through    wear    have    become    unfit    for    use 

*  *      *     is  authorized  to  exchange    *    *     *     (G.  C.  §1231.) 
II.     *     *     *     No  estimate  shall  be  paid  to  any  contractor  by  the  state 

highway  commissioner  until  the  industrial  commission  of 
Ohio  has  certified  that  such  contractor  has  complied  with 
each  and  every  condition  of  the  Act  of  February  20,  1913  and 
all  acts  amendatory  and  supplementary  thereto  and  known  as 
the  workmen's  compensation  law.  *  *  *  (G.  C.  §1218-1.) 
12.  *  *  *  Before  entering  into  a  contract  the  commissioner 
shall  require  a  bond  *  *  *  conditioned  that  the  con- 
tractor will  perform  the  work  upon  the  terms  proposed, 
within  the  time  prescribed,  and  in  accordance  with  the  plans 
and  specifications  thereof  *  *  *  (G.  C.  §1208.) 
13.  If  in  the  opinion  of  the  state  highway  commissioner,  the  con- 
tractor has  not  commenced  his  work  within  a  reasonable 
time,  or  does  not  carry  the  same  forward  with  reasonable 
progress,  or  is  improperly  performing  his  work,  or  has 
abandoned,  or  fails  or  refuses  to  complete  a  contract  *  *  * 
the  state  highway  commissioner  shall  make  a  finding  to  that 
eflfect  and  so  notify  the  contractor  in  writing  *  *  *.  The 
state  highway  commissioner  shall  forthwith  give  written 
notice  to  the  surety  *  *  *  on  the  bond  *  *  *  of 
such     action.       If,     within   ten    days     *     *     *     such    surety 

*  *  *  notified  the  state  highway  commissioner  *  *  * 
of  their  intention    to    enter    upon    and    complete    the  work 

*  *  *  such  surety  shall  be  permitted  so  to  do  *  *  * 
If  such  surety  *  *  *  does  not  carry  the  same  forward 
with    reasonable   progress,   or   if    they    improperly    perform 

*  *     *,     or  abandon,  or  fail  or  refuse  to  complete  the  work 

*  *  *  the  state  highway  commissioner  shall  complete  the 
same  in  the  manner  hereinafter  provided.     *     ♦     * 


202  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

He  shall  first  advertise  the  work  for  letting  in  the  man- 
ner provided  in  Sec-  1206  of  the  General  Code,  and  the  esti- 
mated cost  at  which  such  work  shall  be  so  advertised  shall  be 
the  difference  between  the  original  contract  price  therefor 
and  the  amounts  *  *  *  theretofore  paid  to  the  original 
contractor,  and  at  such  letting  the  contract  for  the  completion 
of  such  work  shall  not  be  let  at  a  price  in  excess  of  such  esti- 
mate. If  no  bids  to  complete  the  work  for  an  amount  not 
exceeding  such  estimate  are  received,  the  state  highway  com- 
missioner shall  cause  the  portion  of  the  work  still  uncompleted 
to  be  re-estimated  and  shall  readvertise  the  same  at  the 
amended  estimate.     *     *     * 

*  *  *  If  the  cost  of  completing  such  work  exceeds 
the  amount  set  aside  *  *  *  the  remander  of  the  cost  shall 
be  paid  in  the  first  instance  from  any  rotary  fund  *  *  * 
or  other  funds  provided  for  the  purpose  *  *  *  or  in  de- 
fault of  any  such  funds  from  any  appropriations  from  the 
state  highway  improvement'  fund  *  *  *  against  which 
no  contractural  obligations  exist.  If  the  cost  of  completing 
any  such  improvement  exceeds  the  portion  of  the  contract 
price  remaining  unpaid  to  the  contractor  at  the  time  of  de- 
fault, it  shall  thereupon  be  the  duty  of  the  state  highway 
commissioner  to  certify  the  facts  to  the  attorney-general, 
who  shall  proceed  to  collect  such  excess  cost  from  the  con- 
tractor and  the  surety  or  sureties  on  his  bond  *  *  *. 
Where  the  estimated  cost  of  completing  a  defaulted  con- 
tract does  not  exceed  $5,000.00,  the  state  highway  commis- 
sioner may  complete  the  same  by  force  account,  or  by  a  con- 
tract let  without  advertisement,  if  in  his  judgment  a  saving 
can  be  efifected  thereby.      (G.  C.  §1209.) 

Interviews  were  had  with  present  and  past  commissioners,  employes 
of  the  department,  county  surveyors  and  interested  citizens.  Some  roads 
were  gone  over  and  reports  and  specifications  were  studied.  The  experi- 
ence in  other  states  and  the  results  of  various  forms  of  organization  in 
use  in  such  departments  were  studied. 

The  state  highway  department  has  a  program  calling  for  the  ex- 
penditure of  $14,000,000  next  year.  Its  organization  for  this  purpose 
is  involved  and  peculiar  and  a  brief  discussion  might  be  of  interest  before 
proceeding  to  the  recommendations. 

The  intent  in  the  beginning  was  apparently  to  follow  the  most  ap- 
l)rovc(l  practice  elsewhere  in  having  a  single  man  at  the  head  of  this 
great  department,  but  a  later  legislature  provided  for  an  "advisory  board" 
which  is  charged  with  the  powers  and  duties  usually  given  to  .highway 
commissions  where  such    form  of  organization   is   used.      So   whatever 


ON  ADMINISTRATIVE  REORGANIZATION  203 

the  name,  the  state  has  now  a  highway  commission  with  a  chief  executive 
not  appointed  by  them.  If  it  is  desired  to  have  a  highway  commission 
the  state  should  say  so,  and  provide  that  they  and  not  the  governor 
appoint  the  executive.  This  would  be  preferable  to  the  present  arrange- 
ment, but  is  not  recommended  as  the  best  arrangement. 

The  internal  organization  has  grown  into  a  complex  complicated 
structure  fundamentally  violating  the  basic  principles  of  proper  organiza- 
tion by  having  men  responsible  to  more  than  one  superior.  This  is 
further  discussed  under  the  suggested  remedy. 

The  most  serious  fault  of  the  present  system  is  the  preponderant 
influence  of  the  counties  in  the  affairs  of  the  department.  Every  highway 
commissioner  has  been  an  ex-county  surveyor.  The  present  county 
surveyors  are  ex-officio  in  charge  of  state  roads  in  their  respective  coun- 
ties. The  department  is  compelled  to  pay  great  deference  to  county  in- 
fluence and  opinion  in  order  to  operate  at  all,  which  is  shown  by  such 
things  as  submission  of  contracts  to  county  commissioners,  local  nomina- 
tions for  appointments,  etc.  The  state  is  in  the  position  of  saying  to 
the  counties,  "Please  may  we  spend  some  money  on  your  roads  on  any 
terms  you  care  to  make?"  instead  of  having  the  counties  request  help 
from  the  state  on  the  state's  terms.  If  it  is  desired  to  have  a  state  high- 
way system,  properly  laid  out,  properly  constructed  and  properly  main- 
tained, have  a  real  state  department  and  not- a  clearing  house  for  county 
work.  If  it  is  desired  to  have  the  counties  supreme,  say  so,  and  cease 
to  maintain  the  fiction  of  a  state  highway  department.  The  present 
organization  is  neither  one  nor  the  other,  but  a  mixture  of  both. 

RECOMMENDATIONS. 

1.  That  the  highway  department  be  placed  under  the  proposed  de- 

partment of  public  works  and  conservation,  and  that  the 
director  of  that  department  be  clothed  with  the  powers  and 
duties  of  the  commissioner  of  highways. 

2.  That   the   office   of   chief  engineer   of   highways   be    established 

to  act  as  the  operating  head  of  the  highway  function. 

3.  That  the  present  deputy  commissioners  and  the  testing  engineer 

act  as  the  technical  staff  of  the  chief  engineer. 
4      That  there  be  but  one  set  of  division  engineers,   all  to  report 
directly  to  the  chief  engineer,  all  orders  from  the  technical 
staff  of  the  chief  engineer  to  be  transmitted  to  the  division 
engineers  only  through  the  chief  engineer. 
These  recommendations  are  so  inter-related  that  they  will  be  dis- 
cussed together  and  the  discussion  will  be  clarified  by  ref- 
erence to  the  organization  charts  on  preceding  pages  of  this 
report. 
As  ^  matter  of  theory  it  would  seem  illogical  to  have  a  depart- 
ment of  public  works  with  the  public  works  function  spend- 


204  KEI'OKT  OF   JOINT   LEGISLATIVE   COMMITTEE 

ing  the  greatest  amount  of  money  in  a  separate  department. 
However  if  this  were  the  only  reason  such  a  consoHdation 
would  be  only  a  "paper"  one  and  of  little  value.     The  com- 
missioner of   highways  finds  his  time  largely  consumed   in 
dealing  with  questions  of  policy,  routine  matters  that  musi 
be   handled  by  him,  and  with  the  duty  of  meeting  people. 
He  has  but  little  time  to  give  to  the  technical  administration 
of  his  department.     All  of  these  duties  with  which  the  com- 
missioner of  highways  is  busied  plus  the  purely  supervisory 
ones  of  the  superntendent  of  public  works  can  be  handled  by 
one  man,  provided  the  department  is  so  organized  that  the 
supervision  of  details  of  operation  is  handled  by  others.     To 
accomplish  this  as  far  as  the  highway  function  is  concerned 
the  creation  of  the  position  of  chief  engineer  is  recommended, 
the  consolidation  with  public  works  making  it  possible  to  ac- 
complish   this    much-needed    change    without    adding    to    the 
number  of  high  salaried  positions. 
There  are  now  three  deputy  commissioners,  one  handling  construc- 
tion,  one   bridges   and   one   maintenance    and    repair.      Each 
deputy  has  his  own  stafT  of   division  engineers  who   are   in 
authority  over  the- county  surveyors  or  resident  engineers  in 
charge  of  state  work  in  their  respective  counties.    This  means 
that  the  man  actually  on  the  job  is  responsible  to  three  differ- 
ent  division   engineers,   to   his   county  electorate,   if   he   is   a 
county  surveyor,  and  if  federal  aid  is  being  given,  to  a  fed- 
eral engineer  as  well.     "No  man  can  serve  two  masters"  to 
say  nothing  of  four  or  five.    It  is  therefore  recommended  that 
the   deputies    (with   names   changed   to   assistant   chief   engi- 
neers)  and  the  testing  engineer  constitute  the  technical  stafiF 
of  the  chief  engineer  and  that  all  their  orders,  rulings,  advice, 
etc.   be   transmitted   to   a   single    set    of    division    engineers 
through  the  chief  engineer  and  that  each  division  engineer  be 
in  effect  in  charge  of  a  miniature  highway  department  with 
full  control  of  all  work  in  his  division,  and  responsible  only 
to  the  chief   engineer.     The   resident   engineer  will  then   be 
responsible  only  to  one  division  engineer  instead  of   three. 
This   change    will    result    in    a    smaller    number    of    division 
engineers  to  handle  the  same  amount  of  work,  but  with  the 
expansion  in  the  road  program  perhaps  no  decrease  in  num- 
ber will  be  possible  although  fifteen  division  engineers  would 
seem  to  be  enough.     This  will  be  a  great  improvement  over 
the  present  condition  and  should  result  in  better  control  and 
a  saving  of  time,  money  and  energy. 


ON    ADMINISTRATIVE   REORGANIZATION  20$ 

That  section  7182  of  the  General  Code  placing  county  surveyors 
in  charge  of  all  highways,  bridges  and  culverts  within  their 
counties  under  the  control  of  the  state,  be  repealed. 

A  state  highway  department  to  be  eft'ective  must  have  full  control 
over  the  following :  — 

1 .  Routes. 

2.  Selection   of   sections   of   road  to  be  improved. 

3 .  Design,  plans  and  specifications. 

4.  Control  over  contracts. 

5 .  Inspection. 

6.  Maintenance. 

PLAN    AND    METHOD    OF    ORGANIZATION. 

With  the  county  surveyor  as  its  deputy  the  state  has  control  over 
I   and  2.  and  partial  control  over  3,  4,  5  and  6,  in  varying 
amounts.      It    results   in   the    department   having  actively   in 
charge  of  its  work  a  man  that  the  department  did  not  select, 
and  who  is  really  responsible  to  the  voters  of  his  county  and 
not  to  the  state.     Admitting  for  the  sake  of  argument  that 
the  county  surveyor  is  thoroughly  competent,  as  many  are, 
and  that  he  endeavors  to  work  whole  heartedly  with  the  state 
department,  as  many  do,  the  fact  remains  that  he  is  primarily 
responsible  for  his  policies,  his  appointments  and  his  acts  to 
his  own  constituents,  which  makes  it  extremely  difficult  for 
him  to  act  for  the  state  without  seeing  the  state's  best  interests 
through  county-tinted  glasses. 
Although   the   statute   clearly   provides    for  the   appointments   of 
inspectors,   superintendents,  etc.,   in  actual  practice  they  are 
nominated  by  the  county  surveyor  and  confirmed  by  the  high- 
way commissioner.     The  serious  result  of  this  practice  is  a 
very  low  standard  of  service  due  to  local  influences,  the  im- 
nrobability   of   continuous   employment,   etc.      The   employee 
owing  his  position  to  a  county  officer  is  more  amenable  to 
local  influences  than  to  the  orders  and  wishes  of  the  state 
department.     This  phase  of  the  question  will  be  further  dis- 
■  cussed  under  the  recommendations  concerning  inspection. 
The  county  surveyor  employs  and  directs  those  working  on  main 
tenance  of  state  roads,  and  makes  the  estimates  for  the  main- 
tenance budget.     As  this   is  all  state  money  he  has  every 
incentive  to  get  as  much  as  possible  for  the  double  purpose 
of  patronage  and  making  a  showing  on  his  roads. 
There  should  be  a  unified  system  of  maintenance  using  stand- 
ardized methods,  but  instead  we  find  88  maintenance  organ- 
izations, the  satisfactory  standardization  of  whose  methods  is 


206  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

a  practical  impossibility.  The  injection  of  the  county  surveyor 
also  leads  to  delay  and  loss  of  time,  due  to  conflicts  of 
authority,  disagreements  due  to  incompatability  of  tempera- 
ment and  differences  due  to  conflicting  interests  of  state  and 
county.  There  is  lost  motion  in  such  an  organization  and  this 
means  loss  of  time  which  in  road  matters  may  mean  the 
difference  between  a  community  having  a  finished  road  and 
spending  another  winter  in  the  mud. 
The  county  surveyor  does  little  of  the  actual  work.  As  a  practi- 
cal matter  he  appoints  persons  to  act  as  resident  engineers, 
etc.,  who  perform  the  work  and  are  separately  paid  by  the 
state.  Some  county  engineers  take  deep  interest  in  the  work 
and  aid  in  every  way  possible  but  do  nothing  in  this  direction 
that  could  not  be  done  by  the  division  engineers  with  com- 
petent resident  engineers  and  inspectors.'  The  eHmination 
of  the  county  surveyor  from  control  of  state  highway  work 
would  not  make  it  necessary  to  add  one  man  to  the  department 
to  handle  the  present  amount  of  work.  The  state  pays  one- 
fifth  of  the  salary  of  the  county  surveyors.  This  amounted 
last  year  to  $48,529.56  which  can  be  entirely  saved  with 
actual  benefit  to  the  operations  of  the  department. 

6.     That  the  "Highway  Advisory  Board"  be  abolished. 

The  highway  advisory  board  would  not  be  objectionable  if  it  were 
what  its  name  implies.  It  is  really  clothed  with  large  ad- 
ministrative powers  and  completely  nullifies  the  advantage  of 
a  single  headed  department.  A  number  of  states  started  their 
highway  department  with  a  three  or  five-man  highway  com- 
mission with  powers  very  like  those  of  the  "advisory  board" 
with  a  chief  engineer  as  executive.  The  general  tendency 
is  to  change  from  this  form  of  organization  to  the  single 
highway  commissioner.  Ohio  escaped  this  outworn  idea  in 
the  beginning  only  to  take  a  backward  step  after  a  few  years 
of  operation.  If  the  state  really  desires  a  highway  commis- 
sion it  should  so  determine  and  not  camouflage  it  under  the 
name  of  an  "advisory  board." 

Any  board  clothed  with  administrative  power  is  of  itself  objec- 
tionable from  the  standpoint  of  holding  executives  responsible 
for  results  and  for  getting  work  done.  Given  the  best  pos- 
sible personnel  and  the  best  possible  intentions  and  its  very 
existence  means  delay.  Contracts,  for  instance,  must  wait 
for  confirmation  and  even  a  short  delay  in  road  matters  is 
serious.  Many  other  questions  which  should  be  decided  at 
once  must  await  the  next  meeting  of  the  board.  It  has  been 
urged   that    the   higliway  commissioner   is  clothed   with   such 


ON    ADMINISTRATIVE    REORGANIZATION  20/ 

large  discretionary  power  that  it  is  necessary  to  have  some 
such  body  as  a  check  against  abuses  of  that  power.  If  the 
state  has  an  honest,  competent  highway  commissioner,  no 
check  is  needed  and  the  board,  if  active  at  all,  is  liable  to  be 
an  obstruction.  If  the  state  has  an  incompetent,  dishonest 
commissioner  he  is  hardly  going  to  be  checked  by  a  board 
selected  by  the  same  appointing  power  and  the  public  may  be 
lulled  into  a  false  sense  of  safety  by  a  supposed  protective 
board  which  is  really  a  rubber  stamp.  There  is  no  cure  for 
the  wrong  kind  of  highway  commissioner  except  his  removal 
and  the  appointment  of  the  right  kind.  You  will  improve 
neither  kind  by  filtering  his  powers  and  responsibilities 
through  a  board. 

It  has  been  urged  that  the  "advisory  board"  is  necessary  because 
a  poor  commissioner  being  appointed  for  a  four-year  term 
cannot  be  checked  without  it.  As  these  studies  are  going  to 
recommend  that  heads  of  departments  appointed  by  the  gov- 
ernor hold  office  only  during  his  pleasure,  that  reason  has  no 
weight. 

It  has  also  been  stated  that  the  board  is  necessary  to  prevent  the 
"material  men"  from  obtaining  undue  influence  with  the  com- 
missioner. A  technically  trained  commissioner  is  far  less 
liable  to  be  fooled  by  the  selling  talk  of  material  men  than  is 
any  board  of  laymen.  In  general  laymen  constitute  easy 
marks  for  material  men.  Again  the  remedy  for  a  commis- 
sioner subject  to  sinister  influence  is  a  new  commissioner. 

A  third  reason  given  for  an  "advisory  board"  is  that  it  tends  to 
prevent  undue  county  influence  in  the  state  highway  depart- 
ment. If  such  influence  must  be  checked  it  would  seem  the 
part  of  wisdom  for  the  appointing  power  to  appoint  others 
than  graduate  county  surveyors  as  commissioners  and  change 
the  statutes  so  that  county  officials  shall  be  no  longer  in 
charge  of  state  work. 

This  unpaid  highway  advisory  board  cost  the  state  $3,428.94  last 
year  which  could  be  used  to  better  advantage  elsewhere  in 
the  department  without  any  damage  to  the  interests  of  the 
state. 

That  provisions  be  made  for  the  right  of  appeal  by  any  interested 
person  from  the  decision  of  the  highway  commissioner,  grant- 
ing any  application  for  aid  from  any  appropriation  or  fimd 
to  intercounty  or  main  market  roads,  to  an  appeal  board  con- 
sisting of  three  officials  of  the  state  resident  in  Columbus  to 
be  designated  by  law. 


2o8  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

It  may  be  felt  by  some  that  opportunity  should  be  given  for 
review  should  any  person  feel  aggrieved  at  the  decision  of  the 
highway  commissioner  in  regard  to  the  distribution  of  money 
for  roads.  The  appeal  can  be  handled  promptly  and  with 
little  cost  to  the  state  in  the  manner  here  proposed. 

8.  That   the   state   highway   department   actually    appoint    the    in- 

spectors on  state  work  as  provided  by  statute. 

9.  That  inspectors  be  organized  as  one  force  and  be  used  in  any  part 

of  the  state  so  as  to  give  as  nearly  continuous  employment 
as  possible. 

1  o  That  inspectors  be  paid  adequate  salaries  and  that  their  expenses 
be  paid  when  they  are  away  from  their  homes. 

1  I .  That  a  regular  course  of  instruction  be  prescribed  for  all  in- 
spectors, and  division  schools  established  where  the  inspect- 
ors in  a  division  shall  meet  at  least  semi-monthly  and  be 
instructed  in  some  phase  of  road  building  under  the  direction 
of  representatives  of  the  department  and  in  collaboration 
with  the  civil  service  commission. 

12.  That  the  compensation  of  inspectors  be  automatically  increased 

upon  satisfactory  completion  of  the  prescribed  courses  of 
study  and  those  failing  to  complete  the  same  be  dropped. 

13.  That   an  effort   be   made   to   employ   at   least   a   nucleus   of    the 

inspection  force  through  the  winter. 

Poor  inspection  of  public  construction  will  result  in  losses  run- 
ning into  millions  of  dollars,  so  that  it  is  of  prime  importance 
that  such  service  be  of  the  highest  quality.  Trained  inspectors 
are  almost  impossible  to  secure.  At  present  in  this  depart- 
ment inspectors  are  appointed  and  work  only  in  their  home 
counties.  This  lays  them  open  to  local  influence,  gives  uncer- 
tain employment,  and  prevents  the  carrying  out  of  a  training 
program.  Besides  this  they  are  seriously  underpaid,  which 
prevents  competent  persons  being  attracted  to  such  positions. 
All  persons  consulted  have  agreed  that  the  present  inspec- 
tional  service  is  unsatisfactory,  for  which  the  following  causes 
are  held  responsible : 

As  an  inspector  is  employed  by  the  county  surveyor  he  looks  to 
him  for  authority  instead  of  to  the  state.  As  he  is  employed 
for  a  particular  job  and  has  no  assurance  of  work  after  the 
job  is  completed,  he  spends  as  many  days  on  the  job  as  pos- 
sible, starting  as* soon  as  allowed  and  dragging  out  the  job 
as  long  as  possible  instead  of  hurrying  to  get  it  completed. 
If  upon  completion  of  one  job  he  could  be  moved  to  another 
part    of    the    state    nearly    continuous    employment   could   be 


ON    ADMIXISTRATIVE    RILORGANIZATIOX 


209 


u- 


IS- 


16. 


secured   and   the  tendency  to  delay  a  job  would  no  longer 
exist.     Furthermore,  there  would  be  a  much  greater  chance 
to  have  competent  and  experienced  men  on  the  job.     With 
such  a  force  a  course  of  training  could  be  carried  out  which 
is  absolutely  necessary  if  satisfactory  service  is  desired.    The 
ideal  inspector  is  the  man  who  can  lake  over  a  job  and  build 
it  himself  if  necessary.     The  only  way  to  get  this  kind  is  to 
train   him.      Extra   pay   should    follow   automatically   on   in- 
creased competency,   and  the   rates  of   pay  should  be  made 
hi-h  enough  to  attract  the  proper  kind  of  men.    Expenses  of 
inspectors   should  be   paid  so  that  the   temptation   to  accept 
favors  from  contractors  will  be  reduced. 
It  is   poor  economy  to   use  untrained,   poorly   paid,   occasionally 
employed    unexperienced  men  on  such  an  important  service 
as  inspection.    The  total  costs  of  this  department  for  engineer- 
ing design  and  inspection  on  the  basis  of  figures  furnished  by 
them  amounted  to  three  and  three-tenths  per  cent,  of  the  total 
expenditures.      This    is    so   low    as    to    raise    suspicion   that 
necessary  service  is  being  neglected  which  seems  to  actually 
be  the  case.     Raise  the  pay,  raise  the  standard  for  employ- 
ment,  provide   continuous   employment   and   proper   training 
and  the  results  will  pay  many  times  the  expense. 
That  resident  engineers,  superintendents  of  maintenance,  etc.,  be 
organized,  trained  and  used  as  recommended  above. 
Most   of   the   reasons   given   for   changes   in   handling   inspectors 
apply  with  equal  force  to  this  group. 
That  a  reclassification  of  salaries  in  the  department  be  made. 
The  labor  turnover  in  the  office  of  the  department  during  the  past 
year  due  to  employes  leaving  for  better  positions  was  fifty- 
three  per  cent.     This  is  pretty  expensive  in  loss  of  service, 
and  no  satisfactory  organization  can  be  expected  as  long  as 
such  a  situation  exists. 
That  the  state  highway  department  refuse  state   aid  to  roads 
where  the  type  of  construction  is  not  proper  for  the  traffic  to 
be  carried. 
This  power  exists  but  has  sometimes  yielded  to  local  pressure  for 
a  cheap  first-cost  road.     The  state  pays  all  costs  of  mainte- 
nance  so  shortsighted  counties  sometimes  insist  on  the  wrong 
tvpe  because  of  low  first  cost.     This  should  be  prevented  or 
the  state  will  eventually  be  in  the  position  of  having  all  its 
funds    for    highway    purposes    absorbed    by    a    maintenance 
budget   for  the  care   of   such   roads.     Ohio  should  learn   a 
lesson  in  this  respect  from  Pennsylvania  and  New  York. 
U 


210  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

17.     That  no  state  aid  be  given  for  new  construction  except  where 
adjacent  to  road  already  improved. 

Apparently  this  policy  is  being  carried  out  to  a  large  extent  but 
it  should  be  stated  as  a  general  policy  and  strictly  adhered 
to  until  present  routes  are  completed. 
iS.     That  the  state  highway  department's  estimate  of  the  cost  of  con- 
struction or  repair  of  roads  or  bridges  be  not  made  public 
before  bids  are  received. 
There   are,  unfortunately,  a  number  of   contractors  who  do  not 
know  how  to  figure  their  costs.     They  make  a  practice   of 
cutting  so  much  under  the  engineer's  estimate.     This  results 
in  bankrupt  contractors,  delay  and  trouble.     The  state  will 
be  better  served,  if  this  type  of  bidder  be  eliminated. 

11;.     That  the  bidders  be  required  to  specify  the  time  in  which  they 

will  complete  the  work,  that  this  be  figured  as  a  definite  factor 

in  determining  the  lowest  bid,  and  that  a  penalty  be  provided 

and  collected  for  zmy  excess  time  consumed  unless  the  delay 

be  caused  by  forces  beyond  the  control  of  the  contractor. 

This  recommendation  is  made  to  aid  in  securing  speed  in  getting 

work  done.     What  the  public  wants  is  completed  roads,  and 

every  incentive  should  be  given  to  get  them  promptly.     By 

figuring  the  excess  cost  of  superintendence,  engineering  and 

inspection,  interest  during  construction,  etc.,  over  the  shortest 

time  bid,  a  rational  method  of  determining  the  lowest  bid 

can  be   obtained.     This  being  used  as   a   definite   factor  in 

determining  the  award,  a  penalty  for  overtime  can  be  enforced 

and  collected. 

20.     That  the  statute  be  amended  so  that  when  a  contract  is  forfeited 

by  the  state  highway  conmiissioner  he  shall  notify  the  surety 

or  sureties  en  the  contractor's  bond  of  the  fact,  and   that 

within  ten  days  they  shall  notify  him  of  their  intention  of 

completing  the  contract  if  they  so  elect.     In  case  they  do  not 

elect  to  proceed  with  the  work,  it  shall  be  readvertised  for 

two  weeks  without  estimate  and  let  to  the  lowest  responsible 

bidder.     Any  excess  cost  plus  the  penalty  for  delay  over  the 

original  time  specified  in  the  bid  of  the  original  contractor  to 

be  collected  from  the  surety  or  sureties  on  the  contractor's 

bond. 

Under  the  present  law  the  delay  in  reletting  such  a  contract  will 

be   about  90  days.     The   procedure   suggested   here   \\\'\   cut 

that  to  not  over  30  davs.  besides  giving  an  additional  incontixe 

to  the  bondsmen  to  take  over  the  work  to,  prevent   furtiicr 

delay. 


'ON  ADMINISTRATIVE  REORGANIZATION  211 

II.     That  unless  surety  companies  pay  at  once  the  claims  which  the 

state  holds  against  them,  surety  bonds  be  no  longer  accepted 

by  the  department;  or 
That  the  state  highway  commissioner  refuse  to  approve  bonds 

tendered    by    surety    companies    who    have    refused    to    pay 

claims  held  against  them  by  the  state. 
The    state   through   contractors   paid   approximately   $65,000   last 
year   to    surety    companies   for   the   protection   of    the   state. 
Experience  would  seem  to  show  that  in  most  cases  no  pro- 
tection was   furnished.     One   company  paid   its  claims  with 
reasonable  promptness,  the  rest  refused  and  there  are  now 
in  the  hands   of  the  attorney  general   for  collection,   claims 
from  this  department  on  contractor's  bonds  over  eight  months 
old,  aggregating  $222,066.09.     This  amount  is  to  reimburse 
the    state    for    losses   actually    incurred   and    money   actually 
spent.     Of  this  amount  $112,569.83  is  against  a  company  in 
the  hands  of  a  receiver,  leaving  $109,496.26  of  claims  against 
solvent  companies.     A  complete  list  of  these  claims  is  in  the 
hands  of  the  committee  and  may  be  published  at  a  later  time 
if  deemed  advisable.    As  far  as  can  be  learned  nothing  except 
technical  excuses  have  been   made  to  explain  non-payment. 
The  wording  and  intent  of  the  bonds  is  perfectly  clear  as  to 
their  insuring  the  state  against  such  losses  as  actually  occurred. 
If  the  surety  companies  do  not  intend  to  afford  the  protection 
for  which  they  are  paid  their  services  should  be  dispensed 
with  at  once.     Companies  furnishing  other  kinds  of  insurance 
pride  themselves  on  prompt  settlements  of  claims  where  there 
is  no   suspicion  or  proof  of  fraud.     While  other  means  of 
protecting  the   state  may  be  hard  to  find  it  is  evident  that 
little  or  no  protection  is  being  furnished  by  surety  companies, 
and  the  state  will  be  as  well  protected  without  their  services. 

22.  That  the  law  cease  to  require  the  certificate  of  the  industrial  com- 

mission that  the  provisions  of  the  workmen's  compensation 

act  have  been  complied  with  before  an  estimate  is  paid  a 

contractor. 

To  require  this  before  paying  the  final  estimate  would  afford  ample 

protection   and  would   avoid   unnecessary  delays  which   now 

occur  due  to  this  requirement. 

23.  That  a  new  study  be  made  of  methods  of  road  maintenance  and 

a  coordinate  plan  and  organization  for  road  maintenance  be 

developed. 

The  state  is  spending  over  two  million  dollars  annually  on  road 

maintenance  and  will  spend  more  in  the  future.     At  present 

the  results  are  verv  unsatisfactory.     This  is  partially  due  to 


212  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

the  impossibility  of  coordinating  88  different  maintenance 
organizations,  partially  due  to  method  and  partially  to  plan. 
There  is  no  field  of  public  work  where  tradition  has  more 
influence  than  in  road  maintenance.  Unbiased  study  will 
result  in  better  service  and  the  saving  of  large  sums  of  money. 
_'4      That  the  present  system  of  marking  state  roads  be  continued,  but 

marks  be  placed  not  more  than  1,000  feet  apart  and  sign  posts 

be  placed  at  road  intersections. 
The  system  of  nnnibering  the  state  routes  and  marking  them  by 
means  of  a  black  outline  map  of  the  state  on  a  white  board 
with  the  number  of  the  road  inside  the  outline,  is  valuable. 
At  present  this  board  is  placed  upon  poles  approximately 
every  half  mile.  It  will  add  greatly  to  the  usefulness  of  this 
system  if  the  markings  are  more  frequent,  and  the  addition 
of  well-designed  sign  posts  at  intersections  will  be  valuable. 

25.  That  a  small  map  be  issued  with  the  numbered  routes  indicated 

thereon. 
This  key  map  should  be  as  small  as  will  show  the  routes  and  num- 
bers plainly.     It  should  sell  for  a  low  price  and  be  available 
at  courthouses,  garages,  hotels,  etc. 

26.  That  the  report  on  the  sources  and  quaJity  of  road  material  in 

Ohio,  in  possession  of  the  department,  be  brought  up  to  date 
if  necessary  and  published  for  the  information  of  all  public 
officers  interested. 
This  information  is  of  great  value  and  should  be  available  to  the 
department,  to  county,  township  and  municipal  officers,  con- 
tractors and  citizens  generally. 


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213 


DEPARTMENT  OF  PUBLIC  WORKS 

By  GA^LORD  C.  CUMMIN 


The  Constitution  of  Ohio  and  the  General  Code  make  the  following 
provisions  relative  to  this  department : 

1 .  "So  long  as  the  state  shall  have  public  works  which  require 
superintendence,  a  superintendent  of  public  works  shall  be  ap- 
pointed by  the  governor  for  the  term  of  one  year,  with  the 
powers  and  duties  now  exercised  by  the  board  of  public  works 
until  otherwise  provided  by  law  and  with  such  other  powers  as 
may  be  provided  by  law."     (Constitution,  Article  8,  §12). 

2.  "The  board  of  public  works  shall  have  the  care  and  control  of 
the  public  works  of  the  state,  and  shall  protect,  maintain  and 
keep  them  in  repair.  It  shall  have  the  power  to  remove  obstruc- 
tion's therein  or  thereto,  and  shall  make  such  alterations  or 
amendments  thereof  and  construct  such  feeders,  dikes,  reser- 
voirs, dams,  locks  or  other  works,  devices  or  improvements  as 
the  board  deems  proper.  It  may  purchase  on  behalf  of  the  state 
such  real  and  personal  property  rights  or  privileges  as  it 
deems  necessary  to  accomplish  such  purposes."     (G.  C.  §412). 

3.  "The  board  of  public  works  may  lease  surplus  water  power  on 
any  of  the  public  works  under  such  rules  and  regul?tions  as 
it  prescribes     *     *     *"     (G.  C.  §431). 

4.  "When  a  public  exigency  exists  the  board  of  public  works 
*  *  *  may  take  possession  of  and  use  lands,  materials  and 
other  property  necessary  for  the  maintenance,  protection  or 
repair  of  the  public  works.     *     *     *"     (G.  C.  §436). 

5.  "In  addition  to  the  powers  and  duties  herein  conferred  upon 
the  superintendent  of  public  works,  said  superintendent  shall 
exercise  all  powers  and  duties  heretofore  conferred  by  law 
upon  the  Ohio  Canal  commission  and  the  board  of  public  works 
with  respect  to  the  lease  and  sale  of  other  canal  or  other  state 
lands,  the  location,  ascertainment,  perfections  and  recording  of 
title  to  all  swamp,  marsh  and  overflow  lands  and  all  other  lands 
wiihin  the  state  to  which  the  state  has  or  should  have  title. 
"■*=**  l)ut  no  land  lease  or  sale  of  canal  or  state  lands  shall 
be  made  except  upon  written  ai)proval  of  the  governor  and 
attorney  general."     ((j.  C.  §  464) 

6.  "That  the  superintendent  may  with  the  approval  of  the  governor 
and  the  attorney  general  lease  swamps,  marsh  and  overflow 
lands  to  the  hsh  and  game  cohimission  for  the  preservation  and 

214  . 


ON    ADMINISTRATIVE   REORGANIZATION  215 

propagation  of  birds,  animals  and  fisli  same  to  be  used  as  State 
parks  and  pleasure  resorts."      ( G.  C.  §13916-3). 

7.  "All  lakes,  reservoirs  and  state  lands  heretofore  or  that  may 
hereafter  be  dedicated  or  set  apart  for  the  use  of  the  public 
for- park  or  pleasure  resort  purposes  shall  be  under  the  control 
and  management  of  the  board  of  public  works  *  *  *."  (G. 
C.  §472). 

8.  Power  is  given  to  the  superintendent  of  public  works  to  pre- 
scribe and  enforce  regulations  concerning  the  state  parks.  (G. 
C.  §474). 

This  department  has  control  of  the  remains  of  the  old  Ohio  canals, 
the  leasing  and  sale  of  state  lands,  surplus  water  power  etc.,  control  of 
state  parks  and  licensing  of  motor  boats  etc.  therein,  supervising  control 
over  inter-county  drainage,  and  over  swamp,  marsh  and  overflow  lands. 
The  necessary  fact  base  was  furnished  by  interviews  with  the  super- 
intendent of  public  works  and  citizens,  answers  to  questionaires,  letters, 
study  of  records,  and  personal  knowledge  by  the  writer  of  certain  phases 
of  the  department's  duties  extending  over  a  number  of  years. 

RECOMMENDATIONS. 

1.  That  Section  12,  Art.  8  of  the  constitution  be  repealed. 

This  provision  provides  for  the  appointment  of  a  superintendent 
of  public  works  by  the  governor  for  a  term  of  one  year. 
Provision  for  administrative  officers  should  be  made  by 
statute  and  should  not  be  in  the  constitution. 

2.  That  a  department  of  public  works  and  conservation  be  es- 
4j  tablished    by    statute    combining    under    one    administrative 

officer  to  be  appointed  by  the  governor  for  an  indeterminate 
term,  the  functions  of  the  present  department  of  public 
works,  the  state  highway  department,  the  superintendent  of 
lands  amd  buildings,  the  state  geologist  and  the  control 
now  exercised  by  the  auditor  of  state  over  school  and  min- 
isterial lands. 

The  state  highway  department,  superintendent  of  lands  and 
buildings  and  state  geologists  are  placed  in  this  consolida- 
tion for  reasons  discussed  in  the  reports  made  on  those 
departments-  Attention  is  called  to  the  organization  chart 
attached- 

The  control  of   school  and  ministerial  lands  should  be  placed 

with  the  control  of  the  state  lands,  so  that  the  handling  of 

funds  connected  shall  be  subject  to  control  by  the  auditor, 

•    and  he  no   longer  placed  in  the  position   of  checking  his 


2l6  REPORT   OF   JOINT   LEGISLATIVE    COMMITTEE 

own  work.     The  control  of  these  lands  is  an  administrative 
function    and   lias   no  place   in   the  office  of   the   auditor. 

3.  That  a  definite  policy  in  regard  to  canal  lands  be  adopted,  and 
either  useless  portions  of  all  the  canals  abandoned  as  recom- 
mended by  the  superintendent  of  public  works  and  sold  or 
leased  to  the  best  advantage. 

The  total  valuation  placed  upon  the  canal  lands  of  the  state  is 
$18,063,054  of  which  $10,550,600  represents  the  value 
of  state  parks,  and  on  $2,903,356  of  which  6%  is  being 
earned  from  leases  on  land  and  water  rights  yielding  an 
annual  income  of  $174,191.36.  This  leaves  canal  lands  of 
a  value  of  $4,609,098  upon  which  nothing  is  being 
earned.  If  the  canals  were  abandoned  definitely  so  that 
this  land  could  be  either  sold  outright,  or  leased  for  long 
terms  if  time  were  taken,  pretty  close  to  this  value  should 
be  secured.  The  lack  of  definite  policy  is  resulting  in  an 
investment  of  more  than  $5,500,000  bringing  the  state 
no  return  direct  or  indirect.  The  perennial  discussion  of 
the  barge  canal  question,  which  is  largely  to  blame  for  the 
lack  of  a  definite  policy  is  therefore  costing  the  state  an- 
nually the  interest  on  this  sum  or  over  $250,000.  Is 
the  discussion  worth  that  amount  of  money?  The  canals 
became  useless  nearly  twenty  years  ago.  If  they  had 
been  sold  at  that  time  the  interest  on  the  sum  received 
would  much  more  than  equal  the  original  sum  and  the  state 
would  have  enough  money  to  buy  the  right  of  way  for  a 
barge  canal  should  such  a  structure  be  decided  upon.  The 
question  of  a  definite  policy  on  canal  lands  shoulc^not  be 
longer  delayed- 

4.  That  the  matter  of  proceeding  with  the  reclamation  projects 
at  the  state  parks  as  proposed  by  the  department  be  seriously 
considered,  and  steps  taken  to  construct  such  as  are  shown 
to  be  good  investments. 

The  department  has  reccjmmended  investigation  of  j^roposed 
reclamation  of  overflowed  land  at  St.  Mary's  T.ake.  Indian 
Lake  and  Loraine  Reservoir-  The  reasons  given  in  reports 
of  the  department  for  the  making  of  such  studies  seem  to 
show  that  the  proposed  improvements  would  be  of  financial 
benefit  to  the  state  without  any  damage  but  rather  with 
benefit  to  the  state's  interest.  It  would  seem  a  matter  of 
.some  importance  to  turn  these  lands,  now  worse  than 
useless,  into  revenue  producing  property. 


ON  ADMINISTRATIVE  REORGANIZATION  217 

That  an  adequate  appropriation  be  made  for  carrying  out  the 
provisions  of  Sec.  464  and  allied  sections  of  the  General  Code 
jn  reference  to  swamp,  marsh  and  overflowed  land  so  that  the 
act  can  be  effective. 

There  are.  important  areas  of  such  lands  in  the  state  including 
one  tract  along  Lake  Erie  of  about  20,000  acres.  The  pro- 
visions of  this  law  promise  profitable  results  to  the  state. 
Unless  financial  provision  is  to  be  made  it  is  better  to  repeal 
the  law. 

That  the  revenue  from  state  parks  be  employed  only  in  im- 
provements therein  as  provided  in  the  statutes.     (G.  C.  §474  ) 

The  revenues  from  the  state  parks  should  either  be  used  as 
provided  by  law  or  the  law  shoud  be  changed.  Many  im- 
provements are  needed  at  these  parks  to  make  them  of  the 
greatest  value  to  the  people  of  the  state,  and  such  revenues 
could  be  profitably  used  as  contemplated  in  the  statutes. 


SUPERINTENDENT  OF  BUILDINGS 

By  GAYLORD  C.  CUMMIN 


Section  146  of  the  General  Code  provides: 

"*  *  *  The  adjutant  general  shall  be  superintendent  of  the 
state  house.  He  shall  have  the  supervision  and. control  of  the 
statis  house  and  the  heating  plant  therein,  the  fixing  and  placing 
of  all  offices,  commissions,  departments  and  bureaus  of  the  state 
therein,  and  full  control  and  supervision  of  fixing  and  placing  all 
offices,  commissions,  departments  and  bureaus  of  the  state  in 
offices,  buildings  and  rooms  outside  the  state  house  when  same 
cannot  be  placed  therein,  materials  and  persons  employed  in  and 
about  the  state  house,  the  grounds  and  appurtenances  thereof  and 
all  work  or  materials  required  in  or  about  them.  He  shall 
rent  all  offices,  buildings  and  rooms  for  all  officers,  commissions, 
departments  and  bureaus  of  the  state  located  outside  the  state 
house,  and  execute  all  leases  in  writing  for  the  same  on  behalf 
of  the  state  subject  to  the  approval  of  the  governor  *  *  *." 

Interviews  were  had  with  the  adjutant  general,  employes  of  the 
department,  other  state  officials  and  persons  familiar  with  both  history 
and  present  operation.  A  complete  personal  examination  was  made  of 
the  state  house  and  annex  in  company  with  representatives  of  the  division 
of  workshops  and  factories,  the  state  fire  marshal  and  the  state  depart- 
ment of  health,  whose  respective  reports  of  such  examination  are  at- 
tached herewith  as  appendices.  The  Wyandotte  building  and  other 
buildings  "housing  state  offices  and  departments  were  also  visited. 

RECOMMENDATIONS : 

1.  That  this  function  be  removed  from  the  control  of  the  adjutant 

general  and  placed  in  the  proposed  department  of  public 
works  and  conservation. 

2.  That  a  full  time,  competent  superintendent  of  state  buildings  and 

grounds  be  provided. 

The  reasons  for  these  two  recommendations  are  so  closely  allied 
that  they  will  be  discussed  together.  This  department  under 
its  present  control  simply  does  not  function.  The  state  house 
and  annex  are  both  dirty  and  dingy.  Marble  floors  uncleaned 
for  weeks,  are  as  of  "no  man's  land",  cleaned  by  neither 
building  nor  department  janitors.  Filthy  and  ill-kept  storc- 
r(>r)ms,   flirt V   walls,   window^,   ccMlings  and   skvlights  are  the 


ON    ADMIN ISTRATIVK   REORGANIZATION  21C) 

regular  thing.  Lack  of  supervision  accounts  for  such  things 
as  —  smoking  parties  of  janitors  with  three  or  four  present 
at  10:45  A.  M.,  3:15  P.  M.;  janitor  asleep  in  reclining  chair 
at  2:15  P.  M.;  three  janitors  leaning  on  a  railing  watching 
a  fourth  clean  a  marble  coping.  This  marble  coping  in  the 
annex  was  kept  under  observation  and  was  cleaned  once  in 
six  weeks ;  stair  landings  not  cleaned  at  all  in  that  time ;  "high 
water  marks"  on  the  marble  pillars  showing  how  far  the 
janitors  could  conveniently  reach  are  still  to  be  seen;  dirt 
and  rubbish  swept  under  radiators,  down  ventilating  radiators, 
behind  desks ;  —  surely  a  disgraceful  condition  for  the  official 
building  of  the  state  of  Ohio.  The  walls  of  the  rotunda  were 
last  renovated  twenty-one  years  ago  and  look  it.  Flags  hang 
in  the  panels,  so  covered  with  grime  that  the  original  color 
in  the  folds  must  be  imagined.  Electric  wiring,  done  in  a 
fashion  that  a  ten-year-old  boy  would  be  ashamed  of  and  in 
violation  of  even  the  most  primary  electrical  code ;  insanitary 
toilets  that  would  be  a  disgrace  to  a  tank  town  railroad 
station ;  interior  toilets  with  little  or  no  ventilation  and  with 
fixtures  of  unapproved  types;  janitors'  sinks  in  filthy  condi- 
tion with  an  odor  all  their  own ;  pine  boxes  stored  in  the 
stairwell  of  the  annex  where  they  would  cause  the  most 
damage  in  case  of  fire ;  a  main  electrical  switchboard  made 
as  nearly  fireproof  as  possible  because  of  the  fire  hazard,  and 
the  space  behind  it  stored  with  articles  packed  in  excelsior 
waiting  for  a  spark ;  storerooms  full  of  miscellaneous  junk, 
loose  papers,  etc. ;  papers  lying  over  steam  pipes,  mops  behind 
steam  radiators ;  an  elevator  shaft  leading  to  the  state  library 
with  a  wooden  door  at  its  foot  and  wooden  partitions  around 
it  in  the  library ;  tons  of  books  and  papers  on  extra  floors 
supported  on  2x4  joists,  strained  to  the  breaking  point  and 
held  up  only  by  bookcases  on  the  floor  below;  string  and 
wires  tied  about  the  large  stone  columns  at  the  entrances  to 
the  old  state  house  with  loose  ends  fluttering  in  the  breeze; 
old  insulators  hanging  from  trees  in  the  state  house  grounds ; 
rags  and  tatters  of  liberty  loan  posters  on  the  sandstone  gate 
posts;  — such  are  some  of  the  more  obvious  evidences  of 
carelessness,  neglect  and  disorder  on  every  hand.  A  little 
energy  on  the  part  of  the  eleven  laborers  employed  by  this 
department  and  the  other  janitors  employed  by  separate 
departments  would  at  least  make  the  building  and  grounds 
reasonably  neat  and  clean.  A  "clean  up  and  paint  up"  cam- 
paign is  far  more  necessary  with  the  state  house  than  in 
many  a  city.  The  redecorating,  painting,  wiring  and  struct- 
ural  changes   necessary   need   first   a   program   and  then   an 


20  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

appropriation,  but  much  of  the  dirt,  the  accumulations  of 
junk,  the  fire  hazards  due  to  boxes,  etc.,  can  and  should  be 
removed  at  once. 
The  chief  cause  for  the  conditions  is  lack  of  interest  and  super- 
vision. The  adjutant  general  is  ex-ofificio  the  custodian  of 
buildings  and  grounds,  but  the  active  heads  are  a  foreman  of 
laborers  and  an  engineer.  Other  states  employ  an  active 
custodian  for  their  state  house  at  salaries  ranging  from  $2,000 
for  Kentucky  to  $5,000  for  New  York.  There  is  plenty  of 
work  for  one  in  Ohio.  The  state  is  apparently  trying  to  get 
something  for  nothing  and  is  having  the  usual  experience  of 
getting  nothing.  It  is  recommended  that  this  function  be 
placed  with  the  department  of  public  works  and  conservation 
for  the  reason  that  it  is  a  function  many  of  whose  factors 
,  are  of  an  engineering  nature,  and  as  this  department  handles 
the  leasing  of  all  lands  owned  by  the  state  it  is  the  natural 
place  to  make  leases  of  land  for  the  state.  The  importance 
of  divorcing  all  but  military  duties  from  the  adjutant  general 
is  covered  in  the  report  on  his  office. 

3      That  all  laborers  and  janitors  be  placed  under  the  control  of  the 
superintendent  of  buildings. 

At  present  there  are  eleven  janitors  in  the  state  house  and  annex 
under  the  superintendent  of  buildings  and  the  equivalent  of 
eight  belonging  to  various  departments,  the  latter  apparently 
being  in  some  cases  reasonably  efficient.  If  the  state  house  is 
to  be  kept  reasonably  clean  one  man  must  have  complete 
charge.      In  this  way  "no  man's  land"  will  not  occur. 

4.     That  one  or  more  competent  electricians  be  employed   on  full 
time. 

3.     That  all  electric  wiring  be  reconstructed  in  conformity  with  the 
underwriter's  code. 

The  details  of  the  conditions  of  the  electric  wiring  are  set  forth 
in  the  report  of  the  state  fire  marshal  attached  to  this  report 
as  appendix  "B."  The  condition  is  almo.st  unbelievably  bad. 
There  is  hardly  any  wiring  installed  that  would  pass  inspec- 
tion and  some  of  the  conditions  are  serious  fire  and  accident 
hazards.  Light  cord  has  been  taped  to  the  lower  part  of 
the  iron  railing  in  the  senate  chamber  and  sockets  for  the 
vacuum  cleaner  are  also  fastened  on  with  tape.  This  is  a 
condition  encouraging  a  short  circuit  and  a  charged  iron  rail. 
The  "cage"  in  the  office  of  the  treasurer  is  in  like  danger 
of  becoming  "live."  Wires  through  doors  and  windows  with 
the  same  closing  thereon  were  noted  in  a  number  of  instances, 


ON    ADMINISTRATIVE   REORGANIZATION  221 

long  loops  of  light  cord  hung  on  nails,  and  with  the  lam]) 
resting  against  wood,  fuses  "jumped"  hecause  "they  hlew 
out  so  often,"  poor  specimens  of  knob  and  cleat  wiring,  wires 
resting  on  pipes,  metal  beams,  etc.,  fixtures  overloaded,  l^ad 
connections  and  in  fact  violations  of  nearly  every  rule  of 
proper  and  safe  construction  were  noted.  A  complete  re-wir- 
ing is  imperatively  necessary  or  the  state  faces  a  good  chance 
of  having  a  serious  fire  due  to  its  persistent  violation  of 
primary  rules  made  for  the  safety  of  life  and  property. 
The  state  now  employs  an  electrician  at  $900  a  year.  Any  knowl- 
edge of  what  must  be  paid  for  such  service  elsewhere  would 
lead  to  a  belief  that  it  is  impossible  to  obtain  a  competent  man 
for  that  price.  The  wiring  done  confirms  the  suspicion.  This 
is  a  poor  way  to  economize. 

6.  That  structural  fixtures  be  made  to  conform  with  the  rules  en- 

forced by  this  state  for  the  safety  of  lives  and  property  in 
buildings. 

The  details  of  present  conditions  will  be  found  in  appendix  "A" 
herewith  attached.  Attention  is  especially  called  to  the  dan- 
gerous condition  in  the  state  library  which  is  dangerous  to 
life,  and  to  the  exceedingly  valuable  collection  of  books  and 
documents  therein.  This  condition  should  be  corrected  at 
once  or  the  responsible  oflficials  may  have  to  answer  for  a 
catastrophe  that  will  shock  the  state,  the  more  so  in  that  had 
the  state's  own  requirements  for  buildings  owned  by  private 
persons  been  met,  the  danger  would  not  exist. 

7.  That  fire  hazards  be  eliminated  at  once. 

Such  fire  hazards  as  occur  in  the  stair-well  of  the  annex,  the 
elevator  to  the  library,  the  excelsior  behind  switchboard,  the 
piles  of  junk  and  papers  in  storerooms,  the  most  dangerous 
features  of  the  wiring,  etc.,  could  be  remedied  at  small  expense 
coupled  with  a  minimum  of  brains  and  effort.  There  is  no 
excuse  for  their  existence. 

8.  That  fire  extinguishers  and  fire  fighting  apparatus  be  installed  as 

required  by  the  rules  of  state  departments  charged  with 
the  safety  of  the  public  and  employees  in  buildings. 

The  entire  fire  fighting  apparatus  now  present  in  the  state  house 
and  annex  as  developed  by  the  examination  made,  consists  of 
one  empty  hose  reel.      Further  comment  is  unnecessary. 

9.  That  risks  to  life  and  limb  from  fire  and  panic  be  at  once  elim- 

inated. 

The  doors  to  both  state  house  and  annex  open  immrd.  A  number 
of  girls  were  working  in  the   old   relic  room  with  but   one 


222  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

means  of  exit  and  that  through  several  compartments  divided 
by  wooden  partitions,  with  about  the  most  dangerous  piece 
of  wiring  in  the  building  lying  on  both  partitions  and  floor. 
The  gallery  in  the  house  is  not  in  conformity  with  state  law 
and  is  acutely  dangerous.  .  The  document  rooms  of  the 
library  should  be  provided  with  a  second  exit,  probably  the 
old  stairway  into  the  office  of  the  supervisor  of  public  print- 
ing. All  the  materials  are  at  hand  for  loss  of  life  because  of 
violation  of  the  laws  of  this  state.  Those  responsible  for 
these  conditions  should  consider  thoughtfull\-  the  possibilities. 

I  o.     That  all  toilets  be  placed  in  sanitary  condition  and  kept  that  way. 

1 1 .  That  all  interior  toilets  be  dismantled  and  closed. 

12.  That  all  plumbing  fixtures  and  their  installation  be  in  conformity 

to  the  rules  of  the  state  department  of  health. 

For  details  of  present  condition  see  appendix  "C"  hereto  attached. 
•  Fixtures  of  inadequate  and  obsolete  type,  some  without  vents, 
kept  in  a  filthy  condition  are  characteristic.  Inside  toilets 
with  no  artificial  light  and  with  little  and  in  one  case  no 
ventilation  were  found.  Can  a  state  afford  to  ignore  its  own 
sanitary  code  in  the  official  home  of  its  government? 

13.  That  provision  be  made  for  adequate,  sanitary  equipment   for 

state  records  in  storerooms;  that  storerooms  be  kept  clean 
and  clear  of  junk  and  rubbish. 

-Important  original  documents  are  now  dumped  in  boxes  or  stored 
on  wooden  shelves,  exposed  to  dust  and  dirt.  Some  store- 
rooms are  clean  and.  neat,  others  are  full  of  miscellaneous 
junk  and  rubbish  and  no  apparent  attention  has  been  paid 
to  arranging  or  taking  care  of  documents  therein.  If  the 
documents  have  no  value  they  should  be  removed  but  from 
what  was  seen  it  is  believed  that  valuable  records  of  the  civil 
war  are  in  the  storeroom  of  the  adjutant  general,  and  valuable 
executive  documents  in  the  storeroom  of  the  governor.  If 
this  supposition  is  correct  the  care  that  the  documents  are 
receiving  is  a  crime  and  immediate  -^d-p^  should  be  taken  to 
classify  and  properly  protect  them. 

14.  That  sufficient  appropriations  be  made  to  keep  state  buildings  in 

repair. 

15.  That  a  plan  of  repair  and  renovation  be  made  and  carried  out 

systematically. 

The  present  api)r(iprialion  for  repairs  to  state  house  and  annex  is 
$5,000  per  year  or  about  one-fourth  of  one  per  cent.  It  costs 
about  two  per  cent  to  keep  a  modern   business  building  in 


ON  ADMINISTRATIVE  REORGANIZATION  22^ 

repair.  The  result  is  that  what  could  be  repaired  today  for 
$50  is  deferred  for  lack  of  funds  and  allowed  to  go  on  until 
it  must  be  repaired  and  then  cost  $1,500,  the  building  in  the 
meantime  looking  like  a  neglected,  down-at-the-heels  wreck. 
Poor  skylights  which  could  be  replaced  for  a  few  thousand 
dollars  allow  water  to  destroy  plaster  and  decorations  costing 
much  more  to  replace,  and  then  appropriations  are  made  for 
new  decorations,  but  nothing  to  correct  the  cause  of  the 
damage.  This  policy  may  be  many  things  but  it  is  certainly 
not  economy.  A  well  conceived  program  of  repair,  cleaning 
and  paint  will  improve  appearance  and  save  money  in  the 
end.  It  is  hard  to  believe  that  the  people  of  Ohio  wish  their 
state  capitol  to  be  in  a  continual  state  of  dingy  dilapidation 
and  disrepair. 

16.  That  a  lighting  study  be  made  in  all  offices  in  state  house  and 

annex  ztnd  the  lighting  fixtures  changed  to  give  adequate 
illumination. 

Some  details  of  the  present  situation  are  to  be  found  in  appendix 
"A"  hereto  attached.  Manifestly  the  state  should  not  ask  its 
employees  to  work  under  the  poor  lighting  conditions  found. 
Proper  fixtures  and  proper  "placing  of  lights  as  the  result  of 
a  study  will  quite  possibly  lead  to  more  satisfactory  lighting 
conditions  and  a  smaller  consumption  of  current.  The  light- 
ing of  corridors  and  the  rotunda  is  also  very  bad.  The  "tin" 
spot  lights  in  the  rotunda  are  certainly  out  of  keeping  with 
their  surroundings. 

17.  That  the  lighting  of  the  "dome"  of  the  state  house  be  done  by 

means  of  "flood  lights"  instead  of  by  the  present  wasteful 
and  inefficient  system. 

The  present  lighting  is  by  means  of  about  1,200  25-watt  tungsten 
lamps,  and  with  lamp  replacements  must  cost  not  less  than 
$1,600  per  year  to  operate.  Burned-out  lamps  and  occasional 
circuit  trouble  results  in  many  different  patterns  of  lights 
and  gives  the  impression  that  an  attempt  is  being  made  to 
signal  to  the  surrounding  country  by  means  of  a  code. 
Modern  flood  lighting  would  be  more  effective,  less  subject 
to  trouble,  and  more  economical. 

1 8.  The  heating  and  ventilating  system,  especially  of  the  state  house, 

should  be  modernized. 

The  present  condition  is  detailed  in  appendix  "A"  hereto  attached. 
It  is  self-evident  that  the  present  system  is  not  only  unsatis- 
factory but  is  unnecessary  costly  to  operate. 


224  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

U).  That  a  statute  be  passed  specifically  giving  state  agencies  charged 
with  enforcing  laws  and  rules  and  regulations  concerning 
the  safety  and  convenience  of  employees  and  the  public 
in  buildings,  the  same  authority  over  buildings  owned  by 
the  state  as  those  owned  by  private  persons,  and  that  pro- 
vision be  made  for  periodic  inspections  and  reports  by  such 
agencies. 
These  laws,  rules  and  regulations  are  made  because  they  are 
deemed  necessary  for  protection  of  employees  and  the  public. 
The  employees  of  the  state  and  persons  visiting  state  build- 
ings are  as  much  entitled  to  protection  as  are  other  persons. 
The  state  of  Ohio  should  be  a  step  ahead  of  others  and  not 
twenty  steps  behind,  in  obeying  its  own  laws.  It  is  true  that 
the  state  cannot  be  fined  or  sued,  but  ]:)0wer  can  be  given  to 
condemn  and  close  up  buildings  or  parts  of  buildings  in  a 
dangerous  condition,  action  being  authorized  against  the  in- 
dividual officer  who  refuses  to  obey  an  order  for  the  safety  of 
employees  and  the  public. 

20.  That  modem  directory  boards  with  movable  letters  be  installed 

at  selected  places  in  the  state  house  and  annex  aided  per- 
haps with  floor  diagrams,  and  the  rooms  be  numbered. 
The  reason  for  this  is  ol)\i()US. 

21.  That    one  or    two  messengers   be   installed   at   a   central   office 

subject  to  call  by  any  department,  and  the  present  depart- 
ment "messengers"  be  either  reclassified  if  they  are  doing 
clerical  or  other  work  or  be  dismissed. 
There  is  apparently  about  $6,200  worth  of  messenger  service  in 
the  state  house  and  annex,  one-half  the  salary  of  a  "messenger 
and  janitor"  being  counted  toward  this  sum.  If  this  really  is 
messenger  service  it  is  entirely  too  high  and  can  be  much 
reduced  bv  use  of  a  central  messenger  service. 

22.  That  the  feasibility  and  possible  economy  of  a  central  telephone 

exchange  be  determined. 
This  should  not  only  resuU  in  consi(leral)le  economy,  but  better 
service  to  the  public,  and  the  service  to  the  departments  would 
be  just  as  good  as  at  present  if  a  sufficient  number  of  "trunks" 
were  installed.  Certainly  no  big  business  establishment  woukl 
attempt  to  operate  without   its  own  telephone  exchange. 

23.  That  the  stairway  and  elevator  shaft  in  the  Wyandotte  building 

be  enclosed  in  a  fireproof  shaft. 

This  is  required  for  safety,  would  not  be  expensive,  and  would 
add  the  equivalent  of  one  office  per  floor,  a  total  of  about 
7,000  square  feet. 


ON    ADM1NISTKATIVI-:    KI:()K(;AN  IZATIOX  225 

24.  That  immediate  steps  be  taken  to  design  and  construct  a  state 

office  building  to  house  all  state  departments. 

The  loss  due  to  the  fact  that  state  departments  are  scattered  over 
a  large  area  in  a  number  of  different  buildings,  is  difficult  to 
estimate  but  is  undoubtedly  of  importance.  The  inconven- 
ience to  the  pubHc  and  the  departments  is  great.  The  cost 
for  the  quarters  occupied  is  high,  and  the  quarters  are  in 
most  cases  poor  and  unfitted  for  the  purpose  for  which  they 
are  used.  They  are  probably  the  best  available,  especially  as 
the  state  can  lease  only  for  two-year  periods,  which  does  not 
enable  the  state  either  to  lease  the  best  buildings  or  get  the 
lowest  prices.  The  result  is  that  the  state  is  put  to  loss  of 
efficiencv  and  inconvenience,  has  valuable  records  stored  in 
buildings  that  are  not  fireproof,  and  is  paying  for  the  privi- 
lege. A  state  office  building  must  be  built  some  time.  It 
will  take  some  years  to  make  the  proper  study  of  space 
needed,  to  select  a  site  and  make  the  plans.  The  longer  it  is 
delayed  the  greater  the  eventual  cost  and  the  continuing  loss. 
Such  a  building  should  be  designed  on  a  unit  plan  so  that 
provision  can  be  made  for  the  expansion  of  state  departments 
in  the  future  without  present  expenditure.  It  must  be  done 
"eventually";  why  not  now  ? 

25.  That  owners  of  buildings  leased  by  the  state  be  required  to  keep 

such  buildings  in  a  safe  and  sanitary   condition,  and  the 
dlepartments  housed  therein  be  required  to  do  their  part 
toward  safety  and  sanitation. 
There  is  room  for  improvement  in  this  regard  at  present. 

NOTE. 

The  Joint  Legislative  Committee  on  Administrative  Reorganization 
wish  to  state  that  steps  have  already  been  taken  to  carry  out  some  of  the 
suggestions  contained  in  this  report. 

APPENDIX  "A". 

THE  INDUSTRIAL  COMMISSION  OF  OHIO. 

Department  of  Inspection. 

columbus. 

December  4th,   1919. 
Mr.  G.  C.  Cummin, 

Legislative  Committee  on  Administrative  Reorganication, 
State  House,   Columbus,    O. 
Dear  Sir:  — 

Through  an  inspection  of  recent  date  made  of  the  Ohio  State 
Capitol  (main  building  and  annex),  by  First  Assistant,  John  Q.  Adams, 


226  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

Architect,  he  has  prepared  the  following  report  and  I  submit  same  for 
your  consideration.  It  having  been  requested  to  exercise  brevity  in 
arranging  this  report,  we  are  including  in  condensed  form  as  much 
abstract  information  and  advice  as  space  would  allow  on  the  subjects 
considered  the  most  important,  having  attempted  to  project  our  survey 
into  detail  as  much  as  our  time  permitted. 

(i)  The  construction  of  this  building  is  of  the  fireproof  type, 
inasmuch  as  all  the  materials  used  are  of  an  incombustible  nature,  which 
insures  this  building  against  danger  to  structural  features  by  fire,  except 
that  certain  floor  beams  may  have  their  strength  impaired  by  the  burning 
of  storage  or  furnishings,  as  the  lower  flange  of  these  beams,  particularly 
in  the  basement,  would  be  exposed  to  the  heat. 

The  metal  members  of  roof  trusses  and  construction  are  also  with- 
out fireproof  covering  and  would  be  dangerously  afifected  by  heat  from 
fire  that  may  reach  the  attic  For  this  reason,  storage  of  a  combustible 
nature  should  not  be  permitted  in  the  attic  or  in  any  part  of  the  building 
having  direct  connection  with  attic  and  not  provided  with  automatic  fire 
shutters  or  standard  fireproof  construction  separating  such  rooms  from 
the  attic. 

The  structural  walls  are  in  first  class  condition  and  in  all  cases  were 
of  thicknesses  in  excess  of  that  warranted  by  loads  imposed  but  which 
were  sized  requisite  to  architectural  embellishment. 

A  very  dangerous  overloaded  floor  condition  exists  in  certain 
rooms  in  connection  with  the  library. 

For  the  purpose  of  providing  more  floor  space,  from  time  to  time, 
for  the  accommodation  of  book  storage,  decks  have  been  placed  in  high 
story  rooms,  which  are  of  construction  that  is  not  only  undersized,  but 
have  not  been  substantially  connected  to  wall  supports. 

In  determining  the  live  loads  imposed  on  these  floors,  allowing  fifty 
pounds  per  cubic  foot  for  general  book  and  paper  weights,  you  will  find 
that  the  floors  are  greatly  overloaded,  and  in  many  instances  loaded  near 
to  the  safety  factor  limit,  to  point  of  rupture.  It  is  not  necessary  herein 
to  define  the  dangers  of  this  overloaded  condition  to  the  life  of  the 
people  employed  in,  or  occupying,  these  parts  of  the  building  and  to 
the  rare  l^ooks  and   magazines  stored  therein. 

In  this  report  we  have  recommended  that  the  library  be  removed 
from  the  State  Capitol  Building,  but  request  that  immediate  corrections 
be  made  requisite  to  the  temporary  protection  of  life  and  property  in  the 
state  library  department. 

Main  egress  doors  throughout  both  buildings  should  be  hinged  to 
swing  outward  in  favor  of  egress  ;  this  will  also  include  main  exit  doors 
from  the  Senate  and  House  chambers.  All  egress  doors  should  be 
equipped  with  standard  emergency  hardware  of  such  nature  that  doors 
may  be  opened  from  within  whether  locked  or  unlocked  with  the  least 
efifort. 


ON    ADMINISTRATIVE   REORGANIZATION  22^ 

Under  State  Building  Laws  exits  from  balconies  shall  be  provided 
so  that  all  parts  of  the  balconies  will  have  at  least  two  means  of  egress. 
This  is  provided  by  arranging  the  exists  as  far  apart  as  possible  in  order 
that  no  person  will  be  compelled  to  pass  one  in  order  to  reach  the  other, 
whereby  a  fire  in  one  would  shut  egress  from  both.  The  balconies  of 
the  House  chamber  are'  not  provided  with  egress  to  meet  with  this 
requirement  and  we  advise  that  stairs,  at  least  forty-two  inches  wide,  of 
comfortable  rise  and  tread  and  with  hand-rails,  be  provided  connecting 
the  dead  ends  of  the  balconies  to  the  main  floor. 

(2)  The  sanitary  condition  of  the  main  building  is  very  poor, 
due  to  changes  made  in  the  building  and  additions  constructed  in  the 
light  courts,  which  appear  to  have  been  made  without  competent  advice 
and  which  obstruct  daylight  from  many  of  the  rooms  and  interfere 
with  the  natural  ventilation;  also  due  to  unlimited  liberties  enjoyed  by 
janitors  in  placing  mops,  scrub  buckets,  cuspidors,  etc.,  in  rooms  used  as 
utility  closets,  which  are  not  maintained  in  a  proper  sanitary  condition. 

The  course  of  fresh  air  travel  between  outside  intake  and  blower 
fans  in  reheater  plenum  chambers,  also  possibly  in  main  warm  air 
trunk  ducts,  also  the  hot  eur  register  boxes  have  been  allowed  to 
collect  dirt  and  filth  which  greatly  depreciates  the  value  of  the  small 
amount  of  ventilation  that  the  steam  fan  blast  system  is  capable  of 
supplying. 

All  parts  exposed  to  the  fresh'  air  travel  should  be  maintained  in  a 
near  dustless  condition  and  should  be  washed  with  lime  or  receive  some 
other  treatment  having  a  purifying  effect  on  the  air. 

Toilet  rooms  and  utility  closets,  not  having  daylight  or  positive 
means  of  ventilation,  should  be  abandoned.  Most  of  these  places  we 
found  to  have  been  constructed  at  a  later  date  than  the  building  proper 
and  apparently  without  regard  to  sanitation. 

(3)  Fire  hazards,  extinguishrnent  and  prevention  are  but  briefly 
treated  in  this  report  as  it  has  been  understood  that  the  Department  of 
the  State  Fire  Marshal  would  elaborate  on  this  subject. 

The  most  hazardous  condition,  in  our  estimation,  existing  in  these 
buildings  is  the  very  bad  condition  of  electric  lighting  wires  which  come 
in  direct  contact  with  the  woodwork  and  in  some  places  metal  parts  of 
cases,  etc.,  without  any  form  of  insulation,  except  for  that  of  the  wire 
covering.  This  condition  could  be  the  cause  for  fire  at  any  time  and 
which  would  be  more  likely  to  happen  in  the  absence  of  the  people 
occupying  the  rooms. 

Fires  of  the  worst  kind  might  be  caused  in  the  basement  where  a 
great  amount  of  paper,  books  and  other  combustible  materials  are  stored, 
by  a  carelessly  placed  match  or  lighted  cigar,  or  by  defective  wiring  or 
by  light  bulbs. 

Rooms  in  the  basement,  available  for  storage,  should  be  isolated  or 
separated  from  the  other  parts  of  the  basement  by  placing  standard  fire 


228  REPORT   OK   JOINT    LKGISLATIVE    COMMITTEE 

doors  or  rolling  steel  shutters  over  the  openings  and  equipping  same 
with  fusible  links  which  should  automatically  close  the  opening  in  case 
of  excess  heat  coming  in  contact  with  the  link. 

Shelves  should  be  provided  in  storage  rooms  in  order  that  the  con- 
tents may  be  properly  placed  and  the  rooms  maintained  in  an  orderly 
condition.  In  these  rooms  signs  worded  "NO  SMOKING  PER- 
MITTED" should  be  placed  as  a  warning  of  the  fire  hazard  created  by 
such  practice  in  rooms  containing  storage  of  a  combustible  nature. 

Attention  should  be  given,  also,  to  other  rooms  in  different  i)arts 
of  the  building  used  for  storage  purposes  and  proi)er  fire  prevention 
provided.  The  very  important  provision  for  extinguishment  of  fire  has 
been  entirely  neglected  in  these  buildings  and  should  be  provided  by  the 
installation  of  fire  hose  of  sufficient  lengths,  so  located  as  to  reach  all 
occupied  parts  of  the  basement,  and  with  underwriters  approved  hand 
fire  extinguishers  placed  in  approved  locations  throughout  the  buildings. 

The  value  of  books  and  papers  stored  in  the  library  can  hardly  be 
expressed  in  the  terms  of  money  and  yet  this  invaluable  collection  is 
endangered  from  fire  that  might  be  caused  by  the  extremely  bad  wiring 
conditions  and  for  which  there  has  not  even  been  any  form  of  fire 
extinguishment  provided. 

(4)  The  lighting  condition  in  these  buildings,  in  most  places,  is 
very  poor  insomuch  as  the  equi])ment  is  undersized,  poorly  placed  and 
very  poorly  maintained.  Perhaps  the  worst  general  condition  is  in  the 
annex  building  where  the  fixtures  are  of  an  antiquated  type,  hang  at  a 
low  point  within  the  ordinary  line  of  vision  and  have  exposed  bulbs  of 
the  tungsten  filament  which  are  very  bright,  injurious  to  the  eye  and 
create  a  very  uncomfortable  lighting  condition  in  the  rooms.  The  fact 
that  the  fixtures  with  exposed  lights  are  placed  within  the  line  of  vision 
magnifies  the  apparent  underlighted  condition  inasmuch  as  the  light 
placed  in  front  of  the  eye  diminishes  detail  in  the  background. 

The  color  of  the  walls  in  most  cases,  which  if  not  of  a  dark  color 
decoration,  is  usually  found  to  be  very  dirty  and  produces  a  greater 
contrast  between  the  light  and  the  background  and  adds  to  the  uncom- 
fortal)le  lighting  arrangement. 

In  some  cases  the  bras-co-lite  type  fixture  was  found,  but  was 
located  without  proper  direction  and  was  usually  found  to  be  too  high 
above  the  working  plane  to  i)roduce  the  best  results.  The  most  of  these 
fixtures  were  found  to  be  very  dirty  and  in  one  instance  the  efficiency 
cjf  the  fixture  was  increased  100'/  by  the  application  of  a  little  soap 
and  water  ap])lied  by  the  janitor.  The  fixture  referred  to  in  this  case 
should  be  lowered  at  least  four  feet  and  sufficient  size  lamps  used  to 
su|)pl\  the  foot  candle  intensity  required  under  good  ])ractice,  which 
is  for  ofticcs,  a  mininnnn  of  ciglit  foot  candle  ranging  to  twelve.  The 
reading  in  the  room  just  referred  to  was  i  '{.  f.  c.  before  the  fixture  was 
wasliecl  and  3  L  c.  after  fixture  was  washed. 


ON    ADMINISTRATIVE    REORGANIZATION  22() 

The  Senate  and  House  Chambers  are  under  hghted  as  llie  following 
lunieter  readings  indicate. 

In  the  House  in  the  center  of  the  room,  directly  beneath  the  largest 
ceiling  fixture  the  reading  was  3J,^  f.  c.  intermediate  location  in  rear  seat 
2)4  f.  c.  and  at  the  clerk's  desk  i->4  f.  c.  We  are  informed  by  the 
custodian,  at  the  time  the  readings  were  taken,  that  a'.l  globes  had 
recently  been  cleaned. 

In  the  Senate  we  found  uniformly  an  increase  of  one-half  to  three- 
fourth  foot  candles  over  the  reading  in  the  House  which  was  possibly 
due  to  the  greater  exposure  to  sky  brightness. 

These  rooms  should  be  lighted  so  that  at  least  6  f.  c.  would  be  pro- 
vided for  all  desk^.  The  draperies  over  the  windows,  being  of  a  very 
dark  color,  intensifies  the  brightness  of  the  sky,  and  by  changing  these 
draperies  to  a  light  color  it  will  reduce  the  contrast  and  will  render  far 
more  agreeable  the  window  openings  which  the  occupants  of  these  rooms 
are  forced  to  face  when  seated. 

The  pedestal  lights  placed  at  each  side  of  the  speaker's  desks  in 
both  the  Senate  and  House  are  in  locations  entirely  contrary  to  rules 
of  good  lighting  inasmuch  as  the  entire  audience  is  compelxd  to  face 
these  lights  when  working  or  when  viewing  the  speaker's  end  of  the 
rooms.  We  would  advise  that  these  lights  be  removed  or  opaque  globes 
be  placed  above  the  bulbs. 

With  the  exception  of  insufficient  foot  candle  intensity,  we  found  in 
the  office  of  the  bureau  of  inspection  of  public  offices,  department  of 
auditor,  a  model  lighting  arrangement  which  had  the  semi-indirect  fixture 
placed  at  the  proper  height  above  the  floor  and  in  locations  to  give  the 
best  distribution  of  light  over  the  entire  room.  These  fixtures  were  also 
connected  with  swatches  that  provided  exceptionally  good  control.  The 
lighting  efficiency  of  these  fixtures  may  be  increased,  however,  by  washing 
from  time  to  time,  and  w^e  would  also  recommend,  in  addition  to  washing, 
that  the  reflecting  surfaces  be  re-enameled. 

On  the  center  table  of  this  room  we  found  an  intensity  of  6  f.  c.  and 
S  f.  c.  on  the  tables  placed  near  the  outer  sides  of  the  room. 

In  the  Senate  reception  room,  where  one  of  the  worst  lighting  con- 
ditions prevails,  we  found  but  i  f.  c.  produced  by  the  artificial  light  and 
but  I  ^  f .  c.  by  the  artificial  and  natural  light  together. 

In  the  Lieutenant  Governor's  Office,  which  is  a  very  small  room,  we 
found  seventeen  40  watt  bulbs  which  equals  680  watts,  all  of  which  were 
burning  when  the  room  was  entered  and  which  produced  but  2  f.  c.  in- 
tensity on  the  Governor's  desk.  By  placing  a  semi-direct  fixture  near 
the  ceiling,  equipped  with  one  100  watt  lamp,  the  lighting  condition  in 
this  room  would  be  improved  400%  and  the  stenographer  in  this  room 
would  not  need  her  individual  desk  light.  We  refer  to  these  individual 
cases  which  appear  to  be  the  most  extreme,  in  order  that  you  may  form 


230  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

a  general  opinion  of  the  bad  lighting  conditions  throughout  these  build 
ings. 

As  the  elements  entering  into  the  problems  of  good  lighting  have 
become  so  complex,  we  earnestly  recommend  that  this  subject  receive 
the  attention  of  a  qualified  illuminating  engineer,  and  since  the  decoration 
and  the  interior  colors  form  a  part  of  the  better  lighting  program,  we 
recommend  that  the  decorator  and  the  illuminating  engineer  work  to- 
gether in  order  that  the  best  results  may  be  accomplished  in  developing 
a  better  system  of  lighting  in  these  buildings. 

(5)  The  heating  and  ventilating  system  has  not  been  tested  to  any 
great  extent  as  only  anomometer  readings,  for  determining  air  volume, 
were  taken  on  one  blower  fan  and  at  one  heat  register  outlet. 

The  system  of  heating  the  main  building  is  that  which  is  commonly 
known  as  a  "fan  blast  system"  which  has  four  different  blower  fans 
taking  the  air  from  the  outside  through  intakes  and  tempering  steam  coils 
and  forcing  the  air  through  main  trunk  ducts  and  through  laterals  to 
different  reheater  plenum  chambers  in  which  are  installed  reheaters  of 
steam  pii)e  coils,  hence  through  flues  to  rooms  throughout  the  various 
parts  of  the  building.  In  connection  with  this  forced  air  system  there  is 
a  single  fan  exhaust  system  which  draws  the  vitiated  air  from  the  various 
rooms  and  exhausts  same  through  flues  above  roof  of  building. 

A  reading  taken  in  the  south-east  blower  fan,  while  same  was 
running  full  speed,  indicated  this  fan  to  be  capable  of  delivering  15,000 
cu.  ft.  of  air  per  minute.  This  particular  fan  supplies  air  to  the  Treasury 
quarter  of  the  building,  which  includes  the  House  chamber,  one-fourth 
of  the  corridors  and  rotunda. 

A  reading  taken  at  heat  inlet  to  general  ofiice  of  Treasury  department 
indicated  a  delivery  of  400  cu.  ft.  per  minute,  this  number  times  60 
minutes  equals  24,000  cu.  ft.  in  one  hour ;  24,000  divided  by  the  cu.  ft. 
contents  of  the  room  (which  was  not  determined)  will  equal  the  number 
of  air  changes  for  this  room  in  one  hour  which  we  think  you  will  find 
to  be  approximately  one  and  one-half  changes. 

In  moderate  weather  the  heat  is  supplied  at  times  by  gravity  without 
operating  the  fans;  this  not  being  a  very  positive  control  certain  occu- 
pants will  request  additional  heat,  which,  if  supplied,  will  necessitate 
running  the  fan,  which  in  turn  will  .supply  additional  heat  for  all  other 
parts  supi)lie(l  by  the  same,  including  the  large  Senate  or  House,  which 
will  not  likely  be  occupied  through  the  heating  season. 

The  point  we  want  to  emphasize  in  the  above  paragraph  is  the  ne- 
cessity of  having  a  separate  heating  apparatus  and  ventilating  system  for 
each  Senate  and  House  chamber  If  this  is  provided  it  will  permit  de- 
creasing speed  of  two  present  fans  which  may  be  accomplished  by 
changing  the  size  of  pulleys,  reducing  speed  or  will  permit  two  of  the 
present  fans  to  be  replaced  by  much  smaller  ones. 


ON    ADMINISTRATIVE   REORGANIZATION  23 1 

In  connection  with  the  individual  fresh  air  supply  system  for  the 
larger  chambers,  we  would  advise  sufficient  direct  radiation  placed  in 
these  rooms  to  warm  same  to  temperatures  at  least  above  freezing  point 
in  order  to  avoid  operating  the  fan  system  when  these  chambers  are 
unoccupied  These  separate  ventilating  systems  should  be  of  sizes  and 
capacities  to  supply  at  least  six  fresh  air  changes  per  hour,  which  is 
necessary  for  proper  ventilating  in  these  assembly  rooms. 

As  space  does  not  permit  us  to  furnish  more  detailed  advice  on  this 
system,  we  will  gladly  elaborate  on  same  upon  request  or  will  furnish 
any  additional  infomation  that  we  may  obtain  that  will  be  of  any 
benefit  to  you. 

We  notice,  in  connection  with  the  fan  installations,  dangerously  ex- 
posed belts  and  pulleys  in  such  locations  that  it  makes  it  necessary  to 
enter  through  the  belt  in  order  to  care  for  the  fans.  We  require  that 
safeguards  be  placed  over  these  belts  and  pulleys  which  shall  be  of  metal 
and  firmly  constructed  in  place.  We  also  advise  that  the  cooling  efifect 
on  the  boilers,  caused  by  opening  the  boiler  room  doors,  be  corrected. 

The  annex  building  is  heated  throughout  with  direct  radiation,  and 
we  do  not  believe  mechanical  ventilation  is  necessary  for  any  part  of  this 
building. 

(6)  It  will  be  very  impractical  to  attempt  to  provide,  by  alterations, 
work  rooms  or  offices  of  any  kind  in  the  basement,  as  the  basement 
should  be  used  only  for  utility  purposes,  i.  e.,  main  water,  steam  and 
sewerage  pipe  lines,  air  ducts,  etc.,  and  allowing  ample  room  for  the 
mechanics  to  make  repairs  and  perform  their  duties  in  these  places. 
We  have  heard  of  criticisms  on  the  basement  of  this  building,  which  we 
think  are  undue,  regarding  lighting,  ventilation,  dark  spaces,  etc.  We 
believe,  and  we  think  it  a  logical  deduction,  that  it  was  not  the  intention 
originally  to  provide  a  basement  that  was  to  be  occupied  as  work  rooms 
and  the  like,  but  was  found  the  most  economical,  when  the  excavation 
was  made,  to  do  the  excavating  with  scrapers  and  remove  all  the  earth 
instead  of  excavating  just  for  the  footings  and  foundations,  the  earth 
from  which  would  have  had  to  be  removed  by  pick  and  shovel. 

Neither  does  our  State  Capitol  present  any  possibilities  for  the  en- 
largement or  addition  to  same,  either  in  plan  or  architecturally  in  eleva- 
tion even  to  the  extent  of  failing  to  connect  harmoniously  with  the  annex 
building  which  was  constructed  at  a  later  date,  as  this  building  should 
have  the  beautiful,  spacious  surroundings  that  were  originally  intended 
when  the  building  was  planned. 

This  building,  of  such  magnificent  architecture,  pleasingly  fossilated 
and  beautified  by  age,  should  not  be  marred  by  further  additions,  but 
should  be  relieved  of  many  of  the  additions  placed  in  it  and  restored 
to  its  original  plan,  housing  perhaps  only  the  elective  officers  as  was 
originally  intended,  and  by  being  relieved  of  the  extra  and  present  con- 


232  KKrOKT   OF    JOINT   LEGISLATI\E    COMMITTEE 

gestion,  will  express,  to  the  fullest  extent,  the  grandeur  and  dignity  of 
the  State  and  be  preserved  to  exist  in  its  original  glory ; 

Therefore,  we  believe  that  no  delay  should  be  allowed  in  purchasing 
a  location  and  erecting  buildings  commensurate  to  the  present  require- 
ments for  properly  housing  State  Offices,  and  providing,  at  the  same 
time,  that  additions  may  be  added  as  future  exi)ansion  may  necessitate. 
This  will  permit  the  rearrangement  of  the  occupancy  in  the  State  Capitol 
building,  and  in  this  jiroposed  program  we  advise  that  arrangements  be 
made  for  removing  the  State  Library  from  the  old  building  into  proper 
([uarters  jjrovided  for  same  in  the  proposed  group. 
Yours  very  respectfully, 

Thomas  P.  Kearns, 

Chief  Deputy. 

APPENDIX  "B" 

state  OF  OHIO 

DEPARTMENT  OF  STATE  FIRE  MARSHAL 
columbus 

December  6,   1919. 
Mr.  (JAVLORD  C".  Cvs\y\\K.  Field  Agent, 
Committee  on  Administrative  Reorganizatio)}. 
State  House. 

Re:    Inspection  of  State   Mouse. 
Mv  Dear  Mr.  Cummin: — 

I  beg  leave  to  report  that  recently  representatives  of  this  department 
made  inspection  of  the  State  House,  in  company  with  representatives 
of  the  workshop  and  factory  division  of  the  industrial  commission,  the 
state  health  department  and  the  cit\-  fire  department.  They  made  an 
inspection  of  the  general  condition  and  of  the  electrical  installation.  I 
beg  to  respectfully  submit  the  following  re])ort.  The  general  condition 
of  the  State  House  was  found  to  be  as  follows: 

"In  the  attic,  we  found  waste  paper,  old  cotton  mops,  electric  wires 
lying  on  iron"  braces  and  in  contact  with  metal.  This  place  needs  a 
thorough  cleaning  ujr. 

Elevator  from  basement,  wooden  door  at  the  bottom,  wooden  jiar- 
titions  at  the  top. 

The  library:  We  found  this  room  in  over-loaded  condition.  There 
are  two  decks  that  are  built  of  \ery  flimsy  material.  The  wood  used 
in  this  construction  is  2x4  material  and  there  are  not  \ery  many  of 
them  to  hold  up  the  over-loaded  shelving.  In  my  opinion  the  load  that 
these  decks  are  carrying  is  liable  to  break  through  at  any  time. 

The  basement  annex,  agricultur;il  :  In  the  store  room  1  tound  rags, 
waste  ])ai)er,  broken  boxes,  old  furniturr  and  rubbish  ol  all  kinds.  Tliis 
room  is  in  a  lilthv  and  dirtv  conditiim  and  a  great  I'lre  hazard. 


ON    ADMINISTRATIVE    RKORGAN IZATION  233 

Basement,  adjutant  general's  room:  I  found  waste  paper,  rags, 
broken  boxes,  old  furniture.      This  room  is  in  very  bad  condition. 

Basement,  auditor's  store  room:  Waste  paper  and  old  lumber  of 
every  description. 

Basement,  workshop  and  factory  room :  r)ld  lumber  and  waste 
paper.      This  store  room  is  in  very  bad  condition. 

Basement,  fish  and  game  store  room :  Old  furniture,  old  fish  nets, 
waste  paper  and  old  lumber.      This  room  is  in  very  bad  condition. 

THE    ANNEX 

In  the  attic  of  this  building  I  found  oily  waste  and  greasy  conditions 
around  the  motors. 

Store  room  on  the  top  floor :  Considerable  rubbish  and  unused 
artic'es      Wooden  door  at  elevator.      This  condition  is  very  bad. 

The  dififerent  rooms  of  the  State  House,  especially  the  basement, 
were  found  to  contain  serious  fire  hazards. 

The  electrical  installation  was  found  to  be  an  obsolete  system  of 
wiring,  which  would  in  no  way  meet  the  requirements  set  forth  in  the 
national  electrical  code,  which  is  the  standard  for  all  electrical  work. 

The  entire  installation  is  in  dilapidated  and  dangerous  condition. 
The  inspector  considered  it  useless  to  attempt  to  overhaul  the  present 
wiring,  and  he  makes  the  recommendation  that  the  entire  electrical  in- 
stallation for  lighting  and  power  Ipe  immediately  removed,  and  new  con- 
duit system  installed. 

Some  of  the  defective  conditions  that  e.xist  in  the  present  wiring  are  : 

1.  B.  X.  Cable  —  loose  and  poorly  supported;  no  connection  or 
bushed  fittings  used  in  the  installation  of  same. 

2.  Greenfield  Flexible  conduit,  poorly  supported,  hanging  over  gas 
pipes,  steam  pipes  ;  no  connection  or  bushed  fitting  used  in  the  installa- 
tion of  same. 

3.  Metal  moulding  installed  without  fittings  ;  poorly  supported. 

4.  Wires  run  from  under  canopies  without  any  insulation  whatever  : 
these  wires  being  lamp  cord  and  of  an  unapproved  type. 

5.  Main  feed  wires  leading  to  main  switch  board  are  in  a  matted, 
twisted  and  uninsulated  condition  at  rear  of  same. 

6.  An  accumulation  of  rubbish  found  stored  in  back  of  main  switch 
board. 

7.  Cases  of  lamp  cord  store'd  in  rear  of  main  switch  board. 

8.  Conduit  in  rear  of  main  switch  board  without  condulets. 

9.  Conduits  throughout  building  in  many  locations  without  con- 
dulets—  bushings  —  boxes  —  and  in  no  location  was  a  ground  to  be 
found. 

10.  Cabinets  placed  on  the  floor  of  the  attic  with  covers  standing 
open  ;  boxes  full  of  dirt. 

11.  Wooden  distribution  boards. 


234  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

12.  Fuses  in  cabinets  jumped  with  solder,  etc.,  in  many  cases  fused 
beyond  their  connected  load. 

13.  Branch  circuits  fused  with  30  Amp.  plugs  throughout. 

14.  Sizes  of  wire  changed  without  the  use  of  a  cutout. 

15.  Open  construction  in  attic  loose  and  sagging,  poorly  supported 
and  in  no  way  properly  insulated ;  material  lying  over  wires  and  cutouts. 

16.  Cutouts  and  cabinets  in  no  way  accessible  in  attic. 

17.  Wires  leading  to  cutouts  and  distributing  locations,  twisted, 
matted  and  poorly  insulated. 

18.  Electric  heaters  connected  direct  on  to  lighting  circuits. 

19.  Lamp  cord  of  an  unapproved  type  used  in  many  locations 
throughout  for  extending  circuits ;  connections  are  found  in  this  type  of 
wiring,  also  found  placed  under  carpet  and  insulation  worn  off  (caused 
from  walking  over  same).  This  cord  is  also  tacked  around  on  wood- 
work ;  hung  over  nails,  hooks  and  other  metal ;  insulation  off  in  many 
places  ;  on  iron  railing  in  senate. 

20.  Wires  are  found  run  through  doorways,  and  in  closing  the 
doors  and  windows  it  is  necessary  to  close  same  on  wire  crushing  the 
insulation. 

21.  This  lamp  cord  construction  is  a  very  dangerous  one  and  is 
found  in  every  location  in  the  building. 

22.  Joints  poorly  made  and  very  poorly  taped  and  no  joints  were 
soldered. 

23.  Phone  wires  used  for  extending  circuits  and  tacked  around  with 
iron  staples. 

24.  Wires  for  extension  are  found  connected  direct  on  to  circuits. 

25.  Wood  cleats  used  for  supporting  wires. 

26.  Wood  moulding  improperly  installed ;  connection  made  in  same 
without  the  aid  of  a  moulding  taplet. 

2"].  Sockets  off  cords  and  bare  ends  hanging  loose. 

28.  Unapproved  old  type  sockets  used  in  many  locations. 

29.  Badly  worn  and  dilapidated  cords  used  for  extensions. 

30.  Oily  and  greasy  condition  found  around  fan  motors  in  attic. 

31.  Socket  caps  without  bushings. 

T^2.  Duplex  wire  used  in  exposed  wiring  at  fans  and  other  loca- 
tions. 

T^T^.  Obstruction  found  in  front  of  door  loading  to  transformer 
vault. 

T    hope   that    this    rc])ort    will   meet    with   your  approval   and   beg   to 


rcmani 


^'ours  very  truly. 

Wm.  J.  Leonard, 
State  Fire  Marshal. 


ON    ADMINISTRATIVE   REORGANIZATION  235 

APPENDIX    "C" 

Columbus,  Ohio,  Dec.  i,  19 19. 
Dr.  a.  W.  Freeman, 
Commissioner  of  Health. 

Dear  Doctor  : 

The  following  is  the  report  of  a  survey  made  of  the  plumbing, 
drainage  and  sanitary  facilities  used  in  the  Capitol  Building. 

number  of  rooms. 
The  main  building  contains  approximately  yy  rooms,  some  of  which 
were  constructed  by  dividing  larger  rooms.     The  state  house  annex  con- 
tains 57  rooms,  making  a  total  of  134. 

occupants. 
The  regular  employes  consist  of  about  300  men  and    100  women. 
When  the  legislature  is  in  session  about  50  additional  women  and  200 
additional  men  are  located  in  the  building. 

plumbing. 

Two  10"  soil  pipe  stacks  serve  34  water  closets,  35  lavatories,  19 
urinals.  4  slop  sinks,  i  janitor's  sink  and  i  sink  for  the  engineer.  The 
sewage  from  these  fixtures  leaves  the  building  through  two  10"  extra 
heavy  cast  iron  house  drains  and  empties  into  the  city  sewer. 

The  above  fixtures  are  located  as  follows :  senate  toilet  room,  5 
water  closets,  4  urinals  and  4  lavatories.  The  general  toilet  room  for 
men  located  ofif  the  south  corridor,  and  the  one  off  the  north  corridor 
are  each  provided  with  three  water  closets,  one  urinal  and  one  lavatory. 

The  only  toilet  room  for  women  in  the  main  building  is  now  nearing 
completion  and  contains  6  water  closets  and  3  lavatories.  A  rest  room 
is  provided  in  connection  with  this  toilet  room,  and  both  are  constructed 
and  equipped  in  accordance  with  the  recommendations  made  to  the 
adjutant  general  under  date  of  June  27,  1918. 

A  toilet  room  for  men  is  located  in  the  interior  light  court  off  the 
north  corridor.  This  contains  2  water  closets  and  i  urinal.  No  lavatory 
is  provided. 

Three  general  toilet  rooms  are  located  in  the  annex,  two  for  men 
and  one  for  women. 

FIXTURES. 

Several  of  the  closet  bowls  are  crazed,  others  are  defective  and  some 
are  of  a  prohibited  pattern. 

Urinals  with  few  exceptions  are  of  the  wall  hung  type  and  the  floors 
beneath  these  fixtures  were  in  an  unsanitary  condition  at  the  time  of 
inspection. 


236  KICI'OKT   OF   JOINT    LK(iISLATl\E    COMMITTKK 

Part  of  the  C(|uipment  was  evidently  installed  at  the  time  the.  building 
was  creeled  about  1S50.     Most  of  the  plumbing  was  installed  in  1901. 

Where  water  closets  are  set  on  wood  floors,  the  wood  is  saturated 
a  consid'jrah'.e  distance  around  the  bowl,  causing  an  insanitary  condition. 

LIGHT    AND   VENTILATION. 

InsulTicient  ventilation  is  noticeable  in  several  toilet  rooms  ancl 
janitors'  .-lop  sink  rooms.  These  are  without  natural  light  and  no 
n;echan:cal  means  is  used  to  change  the  air. 

WATER   SUPPLY. 

Most  of  the  offices  are  supplied  with  bottled  water  for  drinking. 
Some  drinking  cups  are  used  in  common,  other  employes  use  individual 
cups. 

Two  drinking  fountains  are  placed  in  the  main  building,  one  in  the 
north  corridor  and  one  in  the  south. 

A  triple  system  of  water  supi)ly  is  used  to  supply  fixtures,  hose, 
faucets  and  boilers : 

First ;  rain  water  is  taken  directly  from  the  roof  and  stored  in  two 
large  wrought  iron  tanks  placed  directly  over  the  east  and  west  entrances 
to  the  building. 

Second ;  well  water  is  also  pumped  to  the  storage  tanks  and  distrib- 
uted through  the  soft  water  system. 

Third;  city  water  enters  the  building  through  a  two-inch  line,  con- 
nected to  a  three  inch  service  pipe. 

These  three  systems  are  cross  connected  by  means  of  by-passes  and 
valves.  This  causes  a  possibility  of  contamination,  by  having  rain  water 
or  well  water  from  the  tanks  forced  into  the  city  water  service  lines. 

KECOMMENDATIONS. 

Water  proof  floors  should  be  substituted  fur  wood  floors  in  toilet 
rooms. 

All  wall  hung  urinals  should  be  abandoned,  and  fixtures  with  floor 
openings  be  substituted. 

All  prohibited  types  of  closet  bowls  and  defective  bowls  should  be 
replaced  with  fixtures  of  approved  pattern. 

The  distribution  of  bottled  water  should  be  discontinued  and  drink- 
ing f(;rntaMis  with  approxfd  type  of  bubbler  installed. 

.An  .-uixiliai\-  \entilating  system  should  be  installed  to  provide  pos- 
itive ventilatii  n  for  all  interior  toilet  rooms,  slop  sink  rooms,  and  other 
ro(>n-'s  where  the  present  system  is  inoi)erative. 

The  two  large  storage  tanks  should  be  abandoned,  and  all  roof 
water  conrlucted  dircctlv  to  the  stf)rm  sewer. 


ON    ADMINISTRATIVE    RliORGAN  IZATION  237 

The  city  water  service  pipe  should  be  increased  to  adequate  size 
and  all  fixtures  in  both  buildings  supplied  with  city  water. 

The  well  water  supply  should  be  discontinued,  or  used  for  sprinkling 
only,  through  an  entirely  separate  system  without  cross  connections. 

All  alterations,  extensions  and  additions  should  be  made  in  accord- 
ance with  a  definite  and  comprehensive  plan. 

Proper  and  efficient  maintenance  should  be  provided  of  all  sanitary 
equipment  in  the  building. 

Respectfully  submitted, 

W.  F.   Duffy, 
Deputy  State  Inspector  of  Plumbing. 


STATE  BUILDING  COMMISSION 

By  GAYLORD  C.  CUMMIN 


The  General  Code  makes  the  following  provisions   relative  to  the 
state  building  commission  : 

1 .  "Whenever  any  building  or  structure  for  the  use  of  the  state 
or  any  institution  supported  in  whole  or  in  part  by  the  state  or 
in  or  upon  the  public  works  of  the  state  that  are  administered 
by  the  superintendent  of  public  works,  is  to  be  erected  or  con- 
structed, or  whenever  additions  and  alterations,  structural  or 
other  improvements  are  to  be  made,  or  heating,  cooling  or  venti- 
lating plants  or  other  equipment  to  be  installed  for  the  use  of 
the  state,  or  in  or  upon  such  public  works  or  in  or  for  an  insti- 
tution supported  in  whole  or  in  part  by  the  state,  or  for  the 
supply  of  material  therefor,  the  aggregate  cost  of  which  exceeds 
three  thousand  dollars,  each  ofifice  *  *  *  shall  make  or 
cause  to  be  made  by  an  architect  or  engineer,  whose  contract  of 
employment  shall  be  prepared  and  approved  by  the  attorney 
general  and  filed  with  the  auditor  of  state  *  *  *  full  and 
accurate  plans     *     *     * ;     and  details  to  scale  and   full  sized 

*  *  * ;  accurate  bills  showing  the  exact  quantity  of  *  *  * 
ma  t  e  r  i  a  1     *     *     * ;     definite     and     complete     specifications 

*  *  *  to  carry  them  out  and  to  afford  bidders  all  needful 
information;  a  full  and  accurate  estimate  for  each  item  of 
expense  and  of  the  aggregate  cost  *  *  *  and  such  further 
data  as  may  be  required  by  the  governor,  secretary  of  state,  and 
auditor  of  state  acting  as  *  *  *  the  state  building  commis- 
sion.    (G.  C-  §2314). 

2.  Plans  are  to  be  submitted  to  the  state  building  commission  for 
approval.     (G.  C.  §2315). 

3.  Provision  is  made  for  advertising  and  letting  contracts.  (G.  C. 
§  2315,  2317,  2318  and  2319). 

4.  Any  change  in  plans  must  have  the  approval  of  the  building 
commission.      (G.   C.  §2321). 

5.  A  method  of  procedure  is  prescribed  in  case  of  forfeited  con- 
tract.    (G.  C.  §2329). 

Interviews  were  had  with  those  having  dealings  with  the  building 
commission. 

•     238 


ON    ADMINISTRATIVE   REORGANIZATION  239 

RECOMMENDATIONS. 

That  the  building  commission  be  abolished. 

This  is  an  ex-officio  commission  which  is  objectionable  in  itself. 
It  will  hardly  ever  be  composed  of  men  with  any  special 
knowledge  of  the  factors  involved  in  performing  the  duties 
with  which  it  is  charged.  It  weakens  the  sense  of  re- 
sponsibility in  the  departments  with  which  it  deals.  It 
allows  the  possibility  of  interference  with  the  mandates 
of  the  general  assembly  and  the  desires  of  the  governor  by 
persons  responsible  to  neither-  The  proper  control  over 
such  expenditures  is  that  of  the  general  assembly  in  making 
appropriations,  the  governor  holding  the  department  head 
responsible  for  proper  plans  and  specifications,  and  a  stat- 
utory procedure  for  advertising  and  letting  contracts.  .  The 
approval  of  the  attorney  general  of  a  contract  as  to  form, 
the  certificate  of  the  auditor  of  state  that  there  are  funds 
available  under  proper  authority  and  perhaps  the  signature 
of  the  governor  as  the  representative  of  the  state,  would 
give  a  perfectly  safe  procedure.  This  commission  is  an 
administrative  excrescence  which  should  be  removed. 


OFFICE  OF  STATE  GEOLOGI  T 

By  GAYLORD  C.  CUMMIN 


ORGANIZATION. 

'  The  State  Geologist  is  appointed  by  the  governor  for  a  term  of 
three  years,  the  present  incumbent  being  the  professor  of  inorganic 
geology  at  Ohio  State  University.  By  staute  the  state  geologist  is  charged 
w^ith  the  investigation  of  the  geological  structure  and  resources  of  the 
state.  "He  shall  determine  as  nearly  as  possible  the  number  and  extent 
of  the  geological  formations  and  shall  from  time  to  time  represent  them 
upon  maps  and  diagrams.  He  shall  study  the  occurrence  and  distribu- 
tion of  such  formations,  determine  their  chemical  composition  and  struc- 
ture, investigate  the  soils  and  water  supply  of  the  state,  and  give  atten- 
tion to  the  discoveries  of  coal,  building  stone,  natural  cement,  petroleum, 
gas  and  other  natural  substance  of  use  and  value.  He  may  also  collect 
and  describe  the  fossils  of  the  geological  formations  of  the  state,  but  no 
expenditure  shall  be  incurred  therein  unless  authorized  by  the  general 
assembly." 

Interviews  were  had  with  the  state  geologist,  with  various  citizens, 
bulletins  of  the  department  were  consulted,  and  the  writer  drew  upon  his 
personal  knowledge,  acquired  while  using  the  information  in  possession 
of  this  department  for  important  engineering  work  upon  which  he  was 
engaged  in  the  state  some  years  ago. 

Ohio  is  rich  in  mineral  deposits.  It  is  the  foremost  state  in  the 
manufacture  of  clay  products,  stands  high  in  the  production  of  coal, 
petroleum,  natural  gas  and  has  valuable  deposits  of  building  stone,  port- 
land  cement  materials,  gypsum,  salt,  sand,  gravel,  etc.  A  large  part  of 
the  credit  for  the  development  of  such  resources  can  be  traced  to  the 
studies  of  the  distinguished  scientists  who  have  held  the  position  of  state 
geologist. 

The  public  is  inclined  to  view  the  determination  and  position  of  the 
geologic  strata  as  only  of  academic  interest,  but  many  times  such  infor- 
mation has  acted  as  a  guidepost  to  deposits  of  great  economic  value. 
Many  materials  occuring  in  the  state  may  be  of  no  economic  worth  today, 
but  may  suddenly  become  valuable  due  to  improvements  or  discoveries 
in  the  arts  and  industries.  The  use  of  helium  gas  as  a  non-inflammable 
gas  for  balloons  during  the  war  developed  a  sudden  demand  for  informa- 
tion as  to  its  occurrence  in  natural  gas,  and  some  curious  but  apparently 
worthless  data  as  to  the  constituents  of  natural  gas  in  the  Kansas-Okla- 
homa field  suddenly  became  of  great  practical  value. 

240 


ON    ADMINISTKATI\E    RKOKC.ANIZATION  24I 

RECOMMENDATIONS. 

That  this  function  be  placed  under  the  proposed  department 
of  public  works  and  conservation. 

As  explained  in  the  writer's  report  on  the  department  of  pubHc 
works,  the  trend  of  legislation  has  been  to  place  conserva- 
tion functions  under  that  department.  As  this  is  a  con- 
servation function  there  is  logical  reason  for  this  recom- 
mendation. The  added  fact  that  the  services  of  the  state 
geologist  should  be  of  great  value  in  solving  problems  of 
water  supply,  utility  of  canals,  sources  of  road  materials 
etc.  is  another  reason  for  the  proposed  transfer.  ' 

That  the  term  of  office  be  made  indeterminate. 

This  is  a  purely  technical  position  and  there  appears  to  be  no 
reason  why  the  incumbent  should  not  hold  office  until  re- 
moved for  cause.  In  line  with  good  organization  practice 
he  should  be  appointed  by  the  director  of  public  w^orks 
and  conservation. 

That  a  bulletin  be  prepared  on  the  physiography  of  the  state 
for  use  in  the  grade  schools  in  connection  with  nature  study, 
in  physical  geography,  and  in  teacher  training  en  this  subject. 

Such  a  bulletin  should  be  written  in  non-technical  language, 
should  describe  specific  natural  features  in  as  many  parts 
of  the  state  as  practicable  and  should  be  abundantly  illus- 
trated by  photographs,  maps  and  diagrams.  Such  a  volume 
would  also  be  of  much  interest  and  value  to  the  general 
public.  Attention  is  called  to  a  bulletin  of  the  Wisconsin 
Natural  History  and  Geological  Survey  entitled  "The  Physi- 
ography of  Wisconsin"  as  a  type  of  the  kind  of  publication 
recommended. 


10 


INDUSTRIAL  COMMISSION 

Prepared  Under  Direction  of 

DR.  L.  D.  UPSON 

By  ARCH  MANDEL 


INTRODUCTORY    STATEMENT 

This  report  is  based  upon  the  survey  of  the  organization  of  the 
industrial  commission  and  purposes  to  be  a  statement  of  findings  and 
recommended  changes  in  the  organization  based  upon  these  findings. 
The  operation  of  the  various  bureaus  of  the  industrial  commission  was 
studied  only  to  the  extent  to  which  it  reflected  upon  the  organization, 
and  the  recommendations  made  to  change  methods  of  operation  are 
included  in  so  far  as  it  seems  essential  to  a  more  effective  organization. 

In  the  survey  of  the  commission  every  bureau  head  was  interviewed, 
the  procedure,  records  and  reports  of  each  bureau  were  reviewed,  con- 
ferences were  held  with  the  secretary  and  chairman  of  the  commis- 
sion and  the  hearings  of  the  commission  were  attended  and  observed. 
Former  heads  of  the  claims  and  auditing  divisions  were  also  inter- 
viewed. The  state  insurance  fund  itself,  its  solvency  and  the  manner  and 
bases  for  its  ratings,  was  the  object  of  an  independent  study  by  Mr. 
S.  H.  Wolfe,  upon  which  a  separate  report  was  submitted. 

Every  recommendation  made  in  this  report,  except  the  one  relating 
to  fund  manager,  which  was  not  discussed,  received  the  favorable  com- 
ment and  practically  the  approval  of  both  the  secretary  and  chairman 
of  the  commission,  with  whom  they  were  taken  up  individually. 

One  recommendation,  namely,  the  appointment  of  a  superintendent 
of  insurance  or  manager  of  the  fund  was  not  taken  up  with  them, 
but  was  discussed  with  the  assistant  actuary,  the  actuary  himself  being 
away  from  Columbus  at  the  time.  The  findings  which  were  taken  up 
either  with  the  secretary  or  the  chairman  of  the  commission,  and  most 
of  them  were  taken  up  with  both  officials,  were  declared  by  them  to 
be  correct  and  the  citicisms  fair. 

During  the  whole  survey  the  relations  between  the  examiner  and 
the  officers  of  the  industrial  commission  were  cordial,  information  was 
freely  given  and  there  was  exhibited  on  the  part  of  the  chairman  and 
secretary  a  liberal  spirit  of  recognizing  and  admiiling  whatever  short- 
comings were  pointed  out.  It  is  desired  to  express  appreciation  of  the 
reception  of  the  examiner. 

242 


ON    ADMINISTRATIVE   REORGANIZATION 


243 


It  cannot  be  emphasized  too  strongly,  nor  repeated  too  often,  that 
the  governor,  budget  commissioner,  and  the  general  assembly  must  con- 
sider the  industrial  commission,  particularly  those  departments  adminis- 
tering the  state  insurance  fund,  in  an  impartial  and  disinterested  man- 
ner. In  this  instance  there  is  a  definite  service  to  be  performed,  and 
a  definite  contract  to  be  fulfilled.  The  state  is  the  trustee  of  a  fund 
in  which  20,800  employers  are  directly  interested,  and  upon  v^hich  de- 
pends the  welfare  of  1,500,000  employes  and  their  dependents.  This 
fund  had  assets  on  March  i,  1919,  of  over  $19,000,000.  In  other  words, 
this  is  a  vast  insurance  corporation,  which  requires  for  its  proper  con- 
duct at  all  times  the  application  of  sound  business  principles. 


POWERS  AND  DUTIES 

The  industrial  commission  is  composed  of  three  members  appointed 
by  the  governor,  and  is  vested  with  all  the  powers  and  duties  conferred 
and  imposed  by  tlie  law  upon  the  former  state  liability  board  of 
awards,  the  commissioner  of  labor  statistics,  chief  inspector  of  mines, 
chief  inspector  of  workshops  and  factories,  chief  examiners  of  steam 
engineers,  the  board  of  water  works,  the  chief  inspector  of  steam  boilers 
and  the  state  board  of  arbitration  and  conciliation. 

These  duties  are  to: 

1.  Administer  the  state  insurance  fund  for  the  benefit  of  injured 
and  dependents  of  killed  employes. 

2.  Enforce   laws   relative   to   the   protection   of   life,    health   and 
safety  of  persons  employed  in  industrial  and  commercial  es- 
tablishments,   frequenters   of   pubhc   buildings   and   occupants 
of  tenement  and  apartment  houses  and  institutions. 
Prescribe  hours,  labor  safety  devices  and  safeguards. 
Promote  voluntary  arbitration,  mediation  and  conciliation  of 
disputes  between   employers  and  employes. 
Establish  free  public  employment  agencies,  and  supervise  pri- 
vate employment  agencies. 

Collect    and    publish    statistical    information    relating    to    em- 
ployers, employes,  employments  and  places  of  employment. 
Examine  and  license  steam  engineers  and  inspectors  of  steam 
boilers. 
Censor  moving  picture  films. 


ORGANIZATION 

The  industrial  commission  of  Ohio  is  administered  by  a  board  of 
three  appointed  by  the  governor  with  the  consent  of  the  senate,  to  serve 
at  his  pleasure. 


244  KEl'ORT   OF   JOINT    LEGISLATIVE    COMMITTEE 

The  commission  consists  of  the  following  departments : 

1 .  Executive 

2.  Department  of  workmen's  compensation 

Division  of  claims 

Division  of   medical   inspection 

Division  of  auditing 

Division  of  rating —  (acturial) 

3.  Department  of  inspection 

Division  of  workshops  and  factories 

Division  of  boiler  inspection 

Division  of  steam  engineers 

Division  of  mines 

4.  Department  of  investigation  and  statistics 

Division   of   investigation   and   statistics 
Division   of  employment  offices 
Division  of  mediation  and  arbitration 

5.  Department  of  film  censorship 

The  number  of  persons  employed  by  the  commission  is  406,  and  the 
cost  of  personal  service  for  the  fiscal  year  ending  June  30,  1919,  was 
$482,797.31,  cost  of  maintenance  $163,562.19,  total  cost  $646,359.50. 
While  the  organization  of  the  commission  nominally  consists  of  five  de- 
partments, actually  it  consists  of  ten  coordinate  divisions,  the  head  of 
each  being  directly  responsible  to  the  industrial  commission. 

INDUSTRIAL    HYGIENE 

Industrial  hygiene  is  at  present  a  function  of  the  state  health  de- 
partment. While  this  may  be  properly  a  function  of  the  industrial  com- 
mission, it  is  suggested  that  the  -prosecution  of  the  work  in  this  field 
remain  where  it  is,  for  the  time  being  at  least. 

It  is  recommended  that  the  general  assembly  consider  the  extension 
of  state  insurance  to  occupational  diseases. 

1.     GENERAL  ADMINISTRATION 
THE   COMMISSION 

The  commission  of  three  administrators,  through  the  departments- 
enumerated  in  the  foregoing  chapter,  administer  all  of  the  functions  in- 
cluded in  the  Industrial  Commission  .\ct.  Because  of  its  interesting 
features,  and  its  importance,  ihe  workmen's  comi>ensation  department 
receives  at  least  ninety  percent  of  the  attention  of  all  the  members  of 
the  commission.  This  leaves  the  other  branches  of  the  industrial  com- 
mission practically  free,  except  as  the  heads  of  these  departments  take 


ON    ADMINISTRATIVE    HKORGAN IZATIOX  245 

up  with  the  commission  points  upon  which  they  need  guidance  or  action 
by  the  commission. 

Meetings  are  held  almost  daily,  at  which  matters  of  more  or  less 
import  are  passed  upon.  A  review  of  the  minutes  of  these  meetings  for 
a  period  of  a  year  showed  that  the  greater  part  of  the  business  trans- 
acted at  these  meetings  dealt  with  executive  and  administrative  matters, 
rightly  belonging  to  a  chief  executive  or  administrator.  The  chief  reason 
for  having  a  commission  of  three  instead  of  a  single  commissioner  ad- 
minister the  Industrial  Commission  Act  is  the  fact  that  the  act  gives 
its  administrators  the  power  of  making  rules  and  enforcing  them.  Were 
it  otherwise,  a  single  commissioner  could,  with  greater  advantage,  ad- 
minister the  aflfairs  of  the  whole  department.  It  is  recommended,  there- 
fore, that  the  commission  confine  itself  to  its  policy  determining,  rule 
making,  and  judicial  functions,  delegating  all  administrative  and  ex- 
ecutive duties  to  a  chief  administrator. 

It  is  impossible  for  the  three  commissioners  to  perform  effectively 
all  the  duties  prescribed  for  them  under  the  industrial  commission  act 
if  they  undertake  not  only  to  outline  policies  and  to  see  that  they  are 
enforced,  but  also  to  attempt  to  direct  the  carrying  out  of  those  policies. 
The  welfare  of  all  the  employes  in  Ohio  with  which  the  commission  is 
charged  requires  detached  thinking  and  comprehensive  planning,  and 
this  can  be  done  only  if  attention  is  diverted  from  supervising  the  opera- 
tion of  the  machinery. 

HEARINGS 

The  commissioners  alternate  weekly  in  holding  hearings.  As  a  rule 
awards  are  made  upon  a  statement  of  facts  of  the  director  of  claims, 
but  in  disputed  cases  hearings  are  actual,  at  which  interested  parties 
appear,  or  in  the  event  no  one  appears  the  commission  may  make  its 
award  upon  the  documentary  evidence.  In  cases  of  denial  of  award  by 
the  hearing  commissioner,  a  claim  is  acted  upon  at  a  later  session  of 
the  whole  commission.  The  investigator  attended  hearings  during  the 
course  of  a  whole  week,  and  found  that  the  attitude  of  the  commission 
was  fair  and  just  and  even  liberal  to  the  claimant.  At  the  same  time 
the  integrity  of  the  fund  was  safeguarded. 

EMPLOYMENT    OF    ASSISTANTS 

Section  871-14  of  the  Industrial  Commission  Law  authorizes  and 
empowers  the  commission  to  employ,  promote,  and  remove  its  assistants ; 
to  fix  their  compensation,  and  to  assign  their  duties,  "such  employment 
and  compensation  to  be  first  approved  by  the  governor." 

It  is  recommended  that  this  section  be  amended  by  eliminating  the 
requirement  that  the  governor  approve  the  employment  or  compensation 
of  any  of  the  employes  of  the  commission.  All  employes  are  now  in  the 
classified   service,   placing   their  employment   under   regulations   of   the 


246  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

civil  service  commission.  Since  the  governor  appoints  the  civil  service 
commission,  and  also  appoints  the  members  of  the  industrial  commis- 
sion, the  additional  check  of  having  the  governor  approve  appointments 
and  compensation  of  employes  of  the  industrial  commission  is  super- 
fluous and  may  hamper  the  operation  of  the  affairs  of  the  commission. 
It  is  further  recommended  that  all  employes,  from  the  secretary 
down,  be  placed  in  the  classified,  competitive  service ;  that  all  promo- 
tions be  made  through  competitive  examination.  The  latter  is  not  being 
now  done,  and  there  seems  to  be  no  practical  or  obvious  reason  why  it 
should  not  be  done. 

THE   SECRETARY 

The  secretary  appointed  by  the  commission  is  in  direct  charge  of 
the  executive  department,  which  employs  33  persons.  To  a  limited  de- 
gree he  is  the  executive  head  of  the  industrial  commission,  through  whom 
the  orders  of  the  commission  are  carried  out  and  also  through  whom  the 
heads  of  the  various  branches  report  to  the  commission.  The  actual 
secretarial  duties  of  the  commission,  such  as  keeping  the  minutes  of  the 
meetings,  are  performed  by  a  minute  clerk  under  the  direction  of  the 
secretary. 

It  is  recommended  that  the  position  of  secretary  of  the  commission 
be  replaced  by  a  chief  administrator,  responsible  for  the  actual  opera- 
tion of  the  machinery  of  the  industrial  comm.ission,  and  the  carrying 
out  of  all  the  policies  and  rules  of  the  commission ;  that,  subject  to  the 
rules  and  regulations  of  the  civil  service  commission,  he  be  delegated 
the  power  to  employ,  promote  and  discharge  the  employes  of  the  com- 
mission ;  that  the  chief  administrator  be  placed  in  the  classified,  com- 
petitive service.  This  recommendation  takes  for  granted  that  the  com- 
mission is  the  court  of  last  resort. 

EDUCATIONAL    PUBLICITY 

It  is  believed  that  the  commission  could  render  more  satisfactory 
service  if  every  employe  in  the  state  knew  what  are  his  rights  under 
the  workmen's  compensation  law.  and  what  he.  or  his  dependents, 
must  do  when  an  injury  is  sustained  or  death  occurs. 

To  inform  every  employe  it  is  necessary  that  the  commission  carry 
on  a  continual  educational  campaign  in  all  industrial  and  mercantile 
establishments  in  the  state,  interpreting  the  workmen's  compensation 
law  to  employes  by  word  of  mouth,  by  posters,  circulars,  etc.,  in  words 
of  one  syllable,  and  explaining  to  them  the  steps  to  be  taken  in  order 
that  compensation  or  aid  may  be  obtained  from  the  state  insurance  fund. 

Aiany  of  the  larger  industrial  plants  employ  persons  for  the  specific 
and  sole  purpose  of  handling  injured  employes'  claims,  from  the  moment 
the  injury  is  sustained  until  the  settlement  is  made.  In  such  establish- 
ments the  ignorance  of  the  employe  does  not  militate  against  his  re- 
ceiving  com]:)en.sation    or   aid.      The    existence   of    such    departments    in 


ON    ADMINISTRATIVE   REORGANIZATION  247 

factories  indicates  that  there  is  need  for  educating  employes  in  the  pro- 
visions of  the  workmen's  compensation  law  and  in  the  rules  of  the 
industrial  commission. 

2.     WORKMEN'S  COA'IPENSATION  DEPARTMENT. 

This  department  consists  of  four  coordinate  divisions, — claims,  med- 
ical, auditing,  actuarial  —  each  operating  under  the  direction  of  its  own 
chief,  responsible  directly  to  the  commission. 

This  department  operates  the  state  insurance  fund,  which  has  22,000 
employers  as  state  insurance  subscribers  and  800  employers  as  self- 
insurance  subscribers.  Through  these  employers  1,500,000  employes  are 
insured. 

All  employers  having  in  their  employ  five  or  more  persons  come 
under  the  provisions  of  the  workmen's  compensation  law.  They  must 
either  contribute  to  the  state  insurance  fund  or  if  they  so  desire,  they 
may  pay  compensation  and  furnish  medical  and  surgical  care,  etc.,  di- 
rectly to  their  injured  or  their  dependents,  by  making  application  to  the 
industrial  commission  and  establishing  the  fact  that  they  possess  financial 
ability  to  render  certain  payments  of  compensation,  etc.  All  claims 
against  self  insured  employers  are  handled  by  the  employers  themselves 
but  their  awards  are  reviewed  by  the  claims  division  of  the  industrial 
commission.  Employes  of  the  self-insurers  may  appeal  to  the  commis- 
sion if  dissatisfied  with  the  award.  In  all  cases  of  continuing  disability, 
the  self-insurers  render  to  the  industrial  commission  monthly  reports 
of  their  payments.  Claims  against  employers  insured  by  the  state  are 
handled  from  beginning  to  end  by  the  claims  division  of  the  industrial 
commission. 

In  this  report  the  auditing  and  actuarial  divisions  will  not  be  dis- 
cussed as  they  were  made  the  object  of  a  special  study  and  report  by 
Mr.  S.  H.  Wolfe.  (See  report  on  State  Insurance  Fund  by  S.  II. 
Wolfe). 

It  is,  however,  desired  to  make  mention  here  of  one  point  in  con- 
nection with  the  actuarial  division.  The  accident  laboratory  organized 
by  the  actuary  in  his  department  is  worthy  of  commendation.  It  has 
modern  mechanical  facilities  for  recording  and  tabulating  statistics,  but 
it  is  lacking  in  sufficient  personnel  to  develop  and  analyze  these  statistics. 
If  the  recommendation  that  all  statistics,  including  accident,  be  trans- 
ferred to  an  independent  statistical  division  is  not  adopted,  it  is  urged 
that  enough  help  be  allowed  the  accident  laboratory  to  carry  its  statistical 
work  to  a  point  where  it  can  be  used.  If  constructive  work  for  reduc- 
tion or  elimination  of  accidents  is  to  be  done,  it  is  absolutely  essential 
that  the  data  being  gathered  currently  in  the  accident  laboratory  be  put 
in  usable  form,  and  furnished  currently  to  the  various  inspection  branches 
of  the  commission.  Until  this  is  done  the  work  of  inspection  will  be 
indirected,  haphazard  and  negligibly  effective. 


248  RKl'OKT   OF    JOINT   LKC.ISLATINK' COM  M  ITTKE 

SUrERINTENDENT  OF   INSURANCE  OR   FUND   MANAGER 

As  Stated  above,  the  compensation  department  as  at  present  con- 
stituted is  made  up  of  four  coordinate  divisions,  each  under  the  direc- 
tion of  a  chief,  responsible  immediately  to  the  commission.  The  ultimate 
aim  of  all  four  divisions  is  the  same,  and  the  fulfillment  of  this  aim  de- 
pends upon  properly  articulated  action  among  these  divisions.  To  secure 
this,  a  single  head  with  authority  to  enforce  coordination  is  essential. 

Voluntary  cooperation,  however  perfect,  cannot  take  the  place  of 
mandatory  executive  authority  in  achieving  results.  The  commission 
itself  is  too  far  removed  from  the  actual  operation  of  the  insurance  fund 
to  meet  the  need.  It  is,  therefore,  recommended  that  a  fund  manager, 
or  superintendent  of  insurance,  be  appointed,  subject  to  civil  service 
regulations.  The  benefits  to  be  derived  from  the  presence  of  an  executive 
solely  devoted  to  the  administration  of  the  compensation  department 
are  obvious  and  need  not  be  reviewed. 

FIELD    FORCE 

The  field  force  consists  of  about  40  men.  and  includes  claim  in- 
vestigators and  payroll  auditors.  These  men  work  under  the  im- 
mediate direction  of  the  assistant  secretary,  i.  e.,  he  receives  the 
assignments  from  the  auditor  and  director  of  claims  and  he  re-assigns 
them  among  the  field  agents.  This  centralization  of  field  forces  under 
one  person,  together  with  the  plan  of  having  the  field  workers  do  general 
^vork  —  investigate  claims  and  audit  payrolls,  has  proven  successful  from 
an  efficiency  as  well  as  economic  standpoint. 

As  stated  above,  more  field  workers  are  necessary,  and  higher  sal- 
aries are  needed  in  order  to  secure  men  of  higher  qualifications. 

"table  a" 
Total  Claims  Handled  During  the  Year  Ending  June  30.   1919 

Total         Total  Dis-  Total 

Month  pii^j  loosed  of         Pending 

1918 

j„ly  16,267  17.433  14,243 

y^ugust  16.615  16,828  14.030 

September     13.738  15.702  12.066 

October    15.897  14.681  13,282 

November    11.703  13,528  11.457 

December    12,513  13.629  10.341 

1919 

January     12.445  12.8.57  9.5)29 

February                           10.181  12.069  8.041 

March     11.928  11.323  8.646 

April     10.634  11.405  7.875 

May    8,730  9.878  6.718 

June    ll.^>20  12.836  5,502 


on  administrative  re0k(;amzat10n  249 

Division  of  Claims 
organization 
This  division,  under  the  direct  supervision  of  the  director  of  claims, 
employs  eighty-two  persons.     The  forty-six  office  employes  are  classified 
as  follow^s: 

I     chief  clerk,  assistant  to  the  director  of  claims. 
I     stenographer  to  the  auditor,  who  also  handles  the  "Section  27" 
cases,  those  in   which  claims  are  presented  against  defaulting 
employers. 
I     superv'isor,   3  clerks  and  2  stenographers,   who  handle  all  the 
"Section  22"  cases  —  self  insurers  to  the  number  of  800. 
II     claim  examiners,   12  stenographers,  7  typists,  8  clerks  —  filing, 
record,  index,  docket,  etc.,  who  handle  all  the  cases  of  the  22,000 
state  insurance  subscribers. 

PROCEDURE 

All  claims  against  state  subscribers  come  to  this  office,  where  they 
are  prepared  for  hearing  by  the  commission,  so  that  payment  may  be 
made.  The  following  steps  are  followed  in  the  preparation  of  the  claims 
for  hearing: 

1 .  Upon  receipt  in  the  claim  division,  claims  are  sent  to  the  audit- 
ing division  to  see  whether  the  claim  is  active  —  whether  the 
subscriber  has  met  his  obligations.     Returned  to  claim  division. 

2.  Sent  to  actuarial  division  for  classification,  and  sometimes  for 
verification  as  to  whether  the  claim  is  active.  Returned  to  claim 
division. 

3.  Recorded  in  the  claim  division  and  given  a  claim  number. 

4.  Sent  to  the  medical  division  to  check  the  attending  physician's 
estimate  of  the  period  of  disability.  Returned  to  claim  divi- 
sion. 

5.  Placed  in  the  hearing  files  and  are  made  ready  for  a  hearing 
by  the  claim  examiners  who  go  over  the  claims  to  ascertain 
that  all  the  information  is  regular  and  adequate  for  a  settlement 
to  be  made. 

6.  Hearing  docket  is  made  up  by  the  chief  claim  examiner. 

Should  the  claim  as  presented  appear  regular,  offering  no  disputed 
points,  it  is  approved  and  recommended  for  payment.  But  should  the 
proof  presented  appear  questionable,  placing  in  dispute  the  payment  of 
the  claim,  it  is  turned  over  to  a  claim  reviewer  who  seeks  to  obtain  more 
adequate  proof,  and  makes  his  recommendations  for  payment  or  non- 
payment by  the  commission,  based  upon  the  documentary  evidence  sub- 
mitted.   As  a  rule  the  commission  follows  these  recommendations. 


250 


REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 


In  instances  where  appeal  is  made  from  these  decisions  or  when 
it  is  found  more  advisable  to  hold  oral  hearings  with  the  claimants,  the 
claims  are  referred  to  one  of  the  three  referees  who  hold  their  hearings 
and  make  their  recommendations  to  the  commission.  The  plan  of  send- 
ing referees  to  hold  oral  hearings  in  the  cities  where  the  claimants  are 
employed  is  a  good  one,  as  it  relieves  the  claimant,  employer  and  witness 
from  coming  to  Columbus  at  considerable  expense  and  inconvenience, 
while  one  referee  hears  many  cases  in  one  city  and  in  one  locality,  while 
out  on  a  trip.  An  idea  of  the  work  of  the  referees  is  given  in  the 
following  statement: 

''table  i" 
Summary  of  Oral  Hearings  Held  by  the  Three  Claims  Referees  of  the  In- 
dustrial Commission  OF  Ohio    From  January  1,  1919,  to  November 
25,   1919,  Inclusive. 


Place 
Columbus 

Number 
3 

Place 

Elyria    

Blaine     

Cambridge    

Tiffin     

Number 
3 

Mansfield     

Mt.  Vernon    

15 

1 

30 

1 

Akron     

Portsmouth     

26 

Fostoria     

] 

2 

Cleveland    

4 

Delaware     

3 

Van  Wert 

Conneaut   

Toledo    

Cedarville 

1 

Barnesville    

8 

Orrville    

1 

Canton    

Bucyrus 

Urbana     

Athens 

1 

1 

Rutland    

Steubenville        

Hocking    

New  Straitsville 

1 

2 

Washington   C    H.    . . . 

Ironton                            . . 

.       1 

Hamilton   

Marietta     

Logan   

Kelley's  Island    

2 

1 

2 

Zanesville    

Findlay     

New  Lexington  

1 

Springfield    

Bellaire    

1 

1 

1 

New  Philadelphia 

1 

1 

Bellefontaine   

McKeesport,    Pa 

1 

79 


Total    152 

Miscellaneous  Matters    • 26 


73 


Under   this   head   are   included    investigations,    legal   opinions,    statement    of 
facts,    and   review  of  documentary  proof  filed   in   claims. 


The  claim  reviewers  and  referees  are  responsible  directly  to  the  com- 
mission.    It  may  be  stated  in  passing  that  the  recommendations  of  the 


ON    ADMINISTRATIVE   REORGANIZATION  2^1 

reviewers  and  the  referees  in  those  cases  observed  appeared  to  the  ex- 
aminer indicative  of  the  appHcation  of  just  and  able  consideration. 

DELAY   IN    PAYMENT   OF   CLAIMS 

While  the  commission  in  making  claim  settlements  treats  claimants 
fairly  and  even  liberally,  giving  them  the  benefit  of  every  reasonable 
doubt,  and  waiving  hairsplitting  technicalities,  it  is  recognized  that  this 
is  not  sufficient.  It  is  also  necessary  to  pay  claims  promptly  so  that  hard- 
ships attendant  upon  delay  in  making  payments  may  be  avoided. 

It  is  agreed  by  all  who  have  given  the  matter  thought,  and  not  least 
by  the  commission  itself,  that  the  period  between  the  sustaining  of  the 
injury  and  the  granting  of  the  initial  payment  is  unduly  long.  This  delay 
may  be  due  to : 

I .      Inadequate  personnel  —  in  number  or  efficiency. 
■    2.      Procedure  followed  in  putting  thru  claims  for  a  hearing. 

PROCEDURE  FOLLOW^ED 

The  following  statement,  furnished  by  the  Secretary  of  the  Com- 
mission, presents  a  clue  as  to  what  is  probably  the  principal  cause  of 
delay : 

OHIO  I,000  CASES  (Ave.) 

1916     1917     1918     Total 

Interval  between  date  of  accident  and  date  accident  was 

filed    (days)     d4        16        12        14 

Interval  between  filing  of  first  notice  and  filing  of  ap- 
plication      (days)     21        25        28        25 

Interval  between  filing  of  application  and  date  of  hear- 
ing      (days)       6  8  8  7 

Interval  between  filing  of  first  notice  and  date  of  hear- 
ing   (days)     25        37        36        34 

Interval   between    date    of   accident    and    date    of   hear- 
ing  (days)     46        49        56        5:3 

(weeks)       6  4/7    7  8  7  4/7 

It  is  desired  to  call  attention  particularly  to  the  first  two  figures  in 
the  "average"  column.  The  total  time  elapsing  between  the  date  of  the 
accident  and  the  date  upon  which  the  application  is  filed  is  39.  In  other 
words,  it  took  39  days  before  all  the  data  was  in  the  office  required  to 
begin  to'put  the  claim  through  for  a  hearing.  This  data  includes  the  appli- 
cation of  the  injured  man,  a  statement  from  the  employer  and  a  certificate 
from  the  attending  physician.  This  information  was  transmitted  sep- 
arately by  the  three  persons  mentioned,  the  first  notice  coming  from  the 
injured  person,  merely  stating  that  an  injury  had  been  sustained.  An 
interpretation  of  these  figures  brings  up  two  points,  first,  that  the  injtired 
person  either  through  ignorance  or  carelessness  does  not  file  his  notice  of 


2^2  KKI'ORT   OF   JOINT   LEGISLATIVE    COMMITTEE 

injury  until  fourteen  days  have  elapsed;  and  second,  that  after  this  first 
notice  of  accident  has  been  filed,  the  claims  division  waits  until  the  sup- 
plementary information  is  submitted  by  the  attending  physician  and  em- 
ployer. 

In  November,  1919,  the  practice  of  having  all  the  necessary  in- 
formation required  of  the  injured  persons,  employer  and  attending 
physician  submitted  on  one  blank  was  adopted.  This  may  reduce  the 
delay  but  when  it  is  realized  that  the  39  days  delay  is  caused  by  the 
failure  of  the  interested  persons  to  send  in  the  required  information, 
and  that  the  new  plan,  altho  eliminating  one  step  in  the  procedure,  still 
contemplates  waiting  for  the  information  to  be  sent  in,  it  becomes  mani- 
fest that  more  effective  measures  must  be  taken  to  reduce  delay  in  making 
initial  payments. 

Nothing,  of  course,  can  be  done  by  the  industrial  commission  until 
it  is  informed  of  the  occurrence  of  the  accident.  This  the  employer  is 
required  by  law  to  do  within  seven  days.  Mr.  Downey  in  his  report  on 
the  "Actuarial  —  Audit  of  the  Ohio  State  Insurance  Fund"  recommends 
that  this  report  of  the  employer  be  taken  as  prima  facie  evidence  of  a 
compensatable  injury  and  that  a  "proper  system  of  supplementary  reports 
will  establish  the  continuance  or  termination  of  disability."  This  rec- 
ommendation is  confirmed. 

Whether  or  not  the  above  recommendation  .is  adopted  the  industrial 
commission,  through  its  claims  division,  must  take  the  initiative  in  secur- 
ing the  data  required  to  establish  a  claim,  as  soon  as  the  employer's  notice 
of  the  accident  has  been  received.  At  present  the  industrial  commission 
is  absolutely  passive,  shifting  the  whole  burden  to  the  employer,  who 
may  be  indifferent  to  the  injured  person  who  may  be  and  probably  is, 
ignorant  of  exactly  what  steps  to  take,  and  to  the  attending  physician 
who  is  usually  lax  in  supplying  the  needed  information. 

To  take  the  initiative  the  claims  division  must  do  the  following: 

1.  Receive  the  employe's  report  (or  a  copy  of  it)  of  the  occur- 
rence of  the  accident. 

2.  Follow  up  the  accident  by  writing  to  the  claimant  or  his  de- 
pendents, requesting  the  supplementary  information,  or  by  em- 
ploying the  services  of  field  agents  through  the  district  office. 
This  follow-up  through  correspondence  or  through  field  agents 
to  be  continued  until  the  information  is  secured.  Form  letters 
and  printed  instructions  in  simple  language  outlining  the'steps  to 
be  taken  can  be  sent  the  claimant.  This  follow-up  would  neces- 
sitate the  maintenance  of  the  tickler  file  in  the  claims  division 
of  all  cases  in  which  supplementary  information  is  lacking. 

The  most  obvious  remedy  for  sjx'cding  up  initial  payments  would 
be  to  accept  the  enipk)yer's   notice  as  ])rinia    facie  evidence   of  a   com- 


ON    ADMINISTRATIVE    RKORGANIZATION  253 

pensatable  accident,  but  to  prevent  a  lapse  in  subsequent  payments  of 
a  temporary  disability  some  aggressive  follow-up  system  as  suggested 
above  would  still  be  required. 

It  is  not  intended  to  work  out  in  this  report  the  details  of  operating 
an  effective  follow-up.  It  is  merely  desired  to  point  out  and  to  empha- 
size the  fact  that  the  lack  of  initiative  in  following  up  accidents,  either 
through  correspondence  or  through  field  agents,  is  considered  by  the  ex- 
aminer to  be  one  of  the  principal  causes  of  delay  in  making  settlements 
This  finding  was  corroborated  by  the  secretary  of  the  commission  and  by 
the  former  director  of  the  claims  division. 

The  lapse  in  the  continuity  of  payments  in  cases  of  permanent  dis- 
ability because  of  pending  re-examination  by  the  medical  examiner  has 
been  corrected  by  allowing  all  awards  in  such  cases  to  run  until  further 
order  of  the  commission. 

ADEQUACY    OF    PERSONNEL 

There  is  no  doubt  that  additional  referees,  and  field  agents  or  in- 
vestigators, medical  examiners,  would  not  only  expedite  the  disposition 
of  claims,  but  would  also  improve  the  service  generally. 

To  carry  out  a  proper  follow-up  of  claims,  either  for  the  purpose 
of  hastening  initial  payments  or  confirming  continuous  and  subsequent 
payments,  it  is  necessary  to  have  a  sufficient  force  in  the  field. 

As  to  the  sufficiency  of  help  in  the  office,  the  statement  was  made 
by  the  members  of  the  commission  and  the  secretary  that  no  larger 
office  force  is  needed,  but  that  a  higher  grade  of  employe  than  the  salaries 
paid  enable  the  commission  to  obtain,  is  essential,  and  even  ventured  the 
belief  that  fewer  and  more  highly  qualified  employes  could  produce  more 
effective  results. 

How  much  the  seven  days  required  to  put  a  claim  through  the  office 
procedure  can  be  reduced,  and  undoubtedly  it  can,  may  be  determined 
with  almost  mathematical  precision  by  the  director  of  the  claims  division. 
Being  assured,  first,  that  the  routine  followed  in  preparing  claims  is  re- 
duced to  the  simplest  form,  the  number  of  claims  that  can  be  handled 
daily  by  the  claim  examiners  and  the  medical  examiners  can  be  ascer- 
tained, and  knowing  approximately  how  many  claims  come  in  daily,  the 
number  of  persons  required  to  turn  them  out  currently  should  not  be 
a  difficult  matter  to  determine. 

It  is  possible  that  the  need  for  referring  claims  to  the  auditing  divi- 
sion can  be  avoided  if  the  claims  division  maintains  currently  a  visible 
index  of  active  subscribers  to  the  fund.     This  is  merely  a  suggestion. 

It  was  asserted  that  the  civil  service  specifications  as  applied  to  the 
positions  in  the  claims  and  other  divisions  precluded  the  employment  of 
competent  help.  It  would  not  be  surprising  to  find  this  true,  because 
the  specifications  were  made  up  rather  hurriedly  some  years  ago.     The 


254  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

industrial  commission  has  been  able  to  remedy  this  defect  to  some  extent 
by  being  granted  the  permission  to  make  its  own  promotions  without  ex- 
amination by  the  civil  service  commission.  In  any  event,  a  resurvey  of 
the  positions  and  duties  by  the  civil  service  commissions  is  recommended, 
with  the  suggestion  that  the  administrative  and  executive  officers  of  the 
commission  be  freely  and  fully  consulted. 

BRANCH   OFFICES 

In  considering  the  question  of  expeditious  settlement  of  claims,  the 
suggestion  arises  that  the  organizing  of  the  district  offices  into  complete 
units,  i.  e.  agencies  for  settling  claims,  regular  ones  at  least,  in  their  re- 
spective districts,  would  solve  the  problem  of  delay.  Decentralization 
of  the  work  now  performed  in  the  Columbus  office  should,  so  it  seems, 
accomplish  this  object,  but  on  the  other  hand,  it  would  also  tend  to  com- 
plicate the  operation  of  the  compensation  department  and  to  produce  a 
new  species  of  evils.  The  secretary  of  the  commission,  in  this  con- 
nection, stated  that  the  Columbus  office  could  handle  all  claims  expediti- 
ously if  a  qualified  personnel  could  be  employed.  It  is  recommended 
that  the  present  centralized  system  of  handling  claims  be  continued  until 
such  time  as  its  failure  to  operate  efficiently  under  favorable  conditions 
is  demonstrated.  It  is  urged,  however,  that  more  investigators  be  at- 
tached to  the  district  offices  in  accordance  with  foregoing  recommenda- 
tions. 

PROPOSED  REORGANIZATION   OF  CLAIMS  DIVISION 

Manifestly  the  big  task  of  the  compensation  department  so  far  as 
the  general  public  is  concerned  is  to  settle  claims  and  to  settle  them 
promptly.  This  makes  the  claims  division  a  primary  branch  of  the 
service  and  the  position  of  the  director  of  claims  a  most  responsible  one. 
Neither  the  salary  attached  to  this  position,  and  this  is  true  throughout  the 
service  generally,  nor  the  authority  given  the  incumbent,  are  in  pro- 
portion to  the  duties  and  responsibilities  of  the  position. 

The  work  of  the  referees,  claim  reviewers  and  medical  examiners 
deals  primarily  with  the  settlement  of  claims,  and  therefore,  it  seems 
logical  that  these  employes  should  be  placed  under  the  direction  and 
supervision  of  the  director  of  claims,  and  that  the  latter  be  given  full 
authority  as  well  as  the  full  responsibility  for  the  expeditious  and  proper- 
preparation  of  all  claims  for  hearings.  At  the  present  time  the  duties 
as  carried  out  seem  to  be  merely  those  of  a  chief  clerk  whose  job  is  to 
grind  out  routine  matter  throus^h  an  accepted  procedure. 

To  summarize — delay  in  paying  claims  can  be  reduced  by  initiative 
on  the  part  of  the  claims  division  in  securing  all  information  necessary 
to  establish  the  validity  of  a  claim.  This  will  undoubtedly  require  more 
field  investigators  and  a  revision  of  office  methods.  Whether  it  will  re- 
quire an  addition  to  the  office  force  or  merely  more  effective  work  by 


ON    ADMINISTRATIVE   REORGANIZATION  255 

the  same  number  cannot  be  stated  here.  There  has  been  considerable 
mention  of  operation  studies.  Everybody  connected  with  the  commis- 
sion admitted  that  undue  delay  existed  and  that  something  ought  to 
be  done.  It  seems  to  be,  therefore,  a  question  of  somebody  actually 
doing  something.  It  is  up  to  the  director  of  claims  to  begin  the  doing 
and  planning.  Operation  studies  are  an  integral  part  of  the  responsibility 
of  an  executive  particularly  when  he  knows  something  is  wrong.  On  the 
other  hand,  the  general  assembly  and  the  budget  commissioner  must  do 
their  part  so  as  to  avoid  furnishing  excuses  for  deficiencies  in  functioning 
— if  work  programs  are  adequately  presented. 

CASES  DISPOSED  OF  IN  COURT 

During  1919  thirty-one  state  cases  were  disposed  of  in  tlie  common 
pleas  court  as  follows : 

Judgments   rendered   in   favor  of  claimant 15 

Judgments   rendered   in   favor   of   commission 2 

Dismissed   at   plaintifif's    cost 14 

Total     31 

Attention  is  called,  in  the  following  table  of  judgments  rendered  in 
favor  of  claimant,  to  the  attorney  fees  awarded  by  the  court : 

Compensation  Attorney 

Awarded  Fees 

$1,200  00  $400  00 

1,152  00  500  00 

200  00  

500  00  100  00 

1,700  00  1,000  00 

1,050  00  650  00 

958  00  50  00 

2,000  00  300  00 

3,744  00  350  00 

150  00  

150  00  

3,744  00  600  00 

2  00  

150  00  

2,220  80  350  00 

720  00  100  00 

4  00  

2,808  00  

3,750  00  600  00 

2,184  00  300  00 

5,000  00  400  00 

It  is  reported  that  attorneys  when  trying  these  cases  in  court  will 
invariably  introduce  evidence  not  presented  at  the  hearings  before  the 


256  KEI'ORT   OF    JOINT   LEGISLATrVE    COMMITTEE 

commission,  which,  if  introduced  at  that  time,  would  probably  have 
caused  the  commission  to  meet  the  demands  of  the  claimant,  avoiding 
necessity  for  court  action. 

Should  attorneys'  fees  in  such  cases  be  regulated  by  statute? 

Division   of   Medical  Inspection 

organization 

This  division  is  composed  of  a  chief  medical  examiner,  a  chief  as- 
sistant and  six  assistant  medical  examiners,  one  medical  clerk  and  four 
stenographers,  three  full  and  one  part  time. 

DUTIES 

The  duties  of  the  medical  division  divide  themselves  into  two  phases, 
the  work  in  the  office  and  that  in  the  field. 

OFFICE   WORK 

Every  claim  involving  medical  expense  or  compensation  is  reviewed 
by  a  medical  examiner  as  to  the  period  of  disability  stated  or  estimated 
in  the  claim  as  to  whether  the  claim  is  a  compensatable  one  and  also 
as  to  the  judiciousness  of  the  attending  physician's  charges.  Examina- 
tions of  injured  persons  are  made  in  the  office  at  Columbus. 

FIELD   WORK 

Three  medical  examiners  working  in  the  field  all  the  time  make  an 
effort  to  examine  every  case  of  permanent  partial  disability  not  spe- 
cifically outlined  in  the  act;  all  cases  of  permanent  total  disability;  most 
cases  of  temporary  partial  disability  and  of  continued  temporary  total 
disability. 

The  plan  of  medical  examination  carried  on  by  the  medical  division 
is  of  benefit  to  the  individual  and  to  the  fund.  Examinations  reduce  the 
periods  of  compensation  in  many  instances  and  in  other  cases  examina- 
tions result  in  proper  medical  attention  being  secured  by  the  injured 
person.  An  increase  in  the  medical  force  should  be  granted  in  order 
that  cases  may  be  examined  ])romi)tly  and  frequently.  This  would  hasten 
the  settlement  of  claims  held  up  because  of  medical  questions  being  in 
dispute. 

It  is  suggested  that  consideration  be  given  to  locating  medical  in- 
spectors at  the  district  offices  from  which  a  definite  territory  could  easily 
be  covered  at  all  times. 

CUTTING  OF   FEES 

The  report  is  current  that  physicians  thronghout  the  state  refuse  to 
attend  "compensation"  cases  because  the  bills  they  submit  for  their 
services  are  cut  bv  the   industrial   commission.     The   metlical   inspector 


ON   ADMINISTRATIVE   REORGANIZATION  257 

reviewing  the  fees  charged  does  reduce  the  amount  of  the  bill  if  the 
charge  is  above  that  allowed  by  the  schedule  established  by  the  commis- 
sion, or  if  in  the  opinion  of  the  medical  examiner  more  visits  than  the 
disability  warrants  were  made  by  the  attending  physician. 

How  prevalent  this  discontent  is  could  not  be  learned.  From  August 
15,  1919,  to  November  25,  1919,  the  total  reduction  in  medical  fees 
amounted  to  $22,255.95.  The  total  amount  of  fees  paid  to  physicians 
amounted  to  $277,602.95.  During  this  period  921  different  individuals 
suffered  reductions  in  accounts  and  it  is  estimated  that  between  1500  and 
2000  physicians  did  business  with  the  commission.  Whether  the  same 
physicians  repeatedly  had  their  fees  cut  was  not  learned. 

The  chief  medical  inspector  began  to  keep  a  record  of  the  reduc- 
tions made,  reason  for  reduction  and  the  name  of  the  physician  whose 
fees  were  cut.  An  examination  of  the  record,  very  recently  installed, 
showed  that  certain  physicians  repeatedly  had  their  fees  reduced  either 
bcause  of  more  visits  than  were  warranted,  or  because  the  fee  was  above 
the  standard  allowed. 

To  the  examiner  the  schedule  of  fees  allowed  for  various  services 
seemed  fair,  but  it  is  possible  that  with  the  general  increase  in  the  cost 
of  services  and  commodities,  the  standard  set  should  be  revised  upward. 
Incidentally,  this  applies  to  the  salaries  paid  the  medical  examiners. 
Good  service  cannot  be  expected  for  the  salaries  paid,  nor  does  it  increase 
respect  for  the  medical  opinions  rendered  by  the  industrial  commission, 
if  such  opinions  emanate  from  physicians  receiving  from  $2,000  to  $3,500 
per  year. 

The  only  way  to  avoid  discontent  among  the  medical  profession  is 
to  adopt  the  policy  of  approving  all  bills,  if  the  amount  is  based  upon 
the  schedule  rate  set  by  the  commission.  In  other  words,  discretion  as 
to  the  need  for  the  number  of  calls  made  is  to  be  left  entirely  to  the 
attending  physician.  Otherwise  there  is  nothing  to  do  but  to  allow  the 
medical  inspectors  to  use  their  best  judgment  in  auditing  the  medical 
bills. 

3.    DEPARTMENT  OF  INSPECTION. 

The  inspection  department  of  the  industrial  commission  is  com- 
posed of  four  coordinate  divisions,  each  under  the  direct  supervision  and 
control  of  a  chief  deputy.     They  are, 

Division  of  workshops  and  factories 

Division  of  boiler  inspection 

Division  of  steam  engineers 

Division  of  mines 

Division  of  Workshops  and  Factories 
powers  and  duties 
This  is  the  largest  of  the  inspection  divisions,  and  its  functions  cover 
the  safeguarding  of  life  and  health  of  all  persons  employed  in  factories, 
17 


258  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

workshops    and    mercantile   establishments;    and    of    all    frequenters    of 
schools,  and  public  buildings  of  all  kinds. 

It  is  the  duty  of  this  division  to  examine  and  approve  plans  of  all 
public  buildings  and  through  the  inspection  of  all  factories,  workshops, 
and  mercantile  establishments,  to  make  certain 

a.  That  the  heating,  lighting,  ventilating,  and  general  sanitary  con- 
ditions are  conducive  to  good  health. 

b.  That  all  machinery  is  properly  safeguarded. 

c.  That  the  structure  is  safe  and  can  house  safely  the  persons  and 
contents  occupying  the  building. 

d.  That  proper  protection  is  afforded  in  case  of  fire,  and  that  no 
conditions  exist  dangerous  to  life  because  of  undue  fire  hazards. 

e.  That  the  labor  laws — female,  child,  and  eight-hour  —  are  ob- 
served. 

f.     That  occupational  diseases  are  brought  to  the  attention  of  the 

state  department  of  health, 
g.      That  the  mattress  law  is  being  observed. 

The  division  of  workshops  and  factories,  through  the  power  granted 
the  industrial  commission,  has  the  right  to  make  such  inspections  at  any 
time,  and  to  enforce  the  orders  it  issues  to  remedy  defects  found. 

ORGANIZATION 

The  chief  deputy,  the  executive  of  the  division,  has  had  practical  ex- 
perience in  the  building  line.  The  first  assistant  deputy  is  an  architect 
and  engineer,  whose  main  duties  are  to  examine  ail  plans  of  public 
buildings  submitted  to  the  division.  The  second  assistant,  who  has  had 
practical  experience  in  building,  also  examines  plans.  When  the  need 
arises  the  first  and  second  assistants  go  out  into  the  field  to  inspect 
buildings  that  are  being  constructed. 

The  nineteen  men  anrl  eight  women  district  deputies  do  the  general 
factory  inspection.  The  state  is  divided  into  nineteen  districts,  in  each 
of  which  a  woman  is  placed.  As  a  rule  the  men  and  women  inspectors 
do  not  conflict  in  their  duties,  the  latter  concentrating  their  efforts  to 
those  establishments  where  women  and  children  are  employed  in  large 
numbers.  The  six  safety  engineers  were  chosen  because  of  their  more 
intimate  knowledge  of  the  safeguarding  of  machinery.  The  state  is 
divided  into  six  districts,  each  in  charge  of  one  engineer,  who  is  assigned 
to  the  larger  factories  in  each  district  —  those  containing  more  intricate 
machinery.  These  engineers  not  only  inspect  the  factories  in  reference 
to  safety  of  machinery,  but  make  a  general  inspection  of  those  factories 
under  their  supervision.  In  this  wise  duplication  of  inspection  by  the 
general  factory  inspector  is  avoided.  The  safety  engineers'  work  in- 
cludes also  the  organization  in  each  factory  of  a  safety  council,  made  up 
of  employes  of  the  factory,  thus  bujlding  up  in  each  plant  a  continuous 


ON    ADMINISTRATIVE   REORGANIZATION  259 

supervisory  and  inspectional  service  for  the  elimination  of  accidents. 
The  three  district  deputies  assigned  to  bake  shops  spend  all  of  their  time 
in  the  inspection  of  bake  shops,  and  in  the  enforcement  of  the  labor 
law  in  bake  shops. 

Since  August  1919,  two  inspectors,  known  as  high  power  piping 
inspectors,  have  been  employed.  They  inspect  all  refrigerating  and 
hydraulic  piping  and  all  high  power  piping  from  the  first  valve  of  a 
boiler  outward. 

The  explosives  inspector,  as  the  title  indicates,  inspects  all  storage 
of  explosive  material.  Under  the  new  explosives  act  of  19 19  every 
place  —  about  12,000  — where  explosives  are  stored  is  being  inspected 
and  if  approved,  licensed.  The  income  from  these  licenses  will  be  about 
$20,000  annually. 

The  safety  director  is  directly  responsible  to  the  chief  inspector,  and 
is  the  safety  propagandist  for  this  division.  It  is  his  duty  to  help  or- 
ganize safety  organizations  in  factories,  to  arrange  meetings  where  safety 
talks  are  given,  to  arrange  safety  exhibits  and  to  spread  the  gospel  of 
safety  in  any  manner  he  may  deem  effective. 

STATE   BUILDING   CODE 

At  present  the  department  is  working  under  a  number  of  miscel- 
laneous codes,  promulgated  by  it  to  cover  the  different  phases  of  in- 
spection work  to  be  done.  A  tentative  building  code  incorporating  all 
these  individual  codes  has  been  prepared  and  it  is  hoped  will  be  made 
a  law  at  the  next  regular  session  of  the  legislature.  Enforcement  of  this 
building  code  under  the  present  laws  devolve  upon  the  division  of  work- 
shops and  factories,  except  for  that  part  of  the  code  covering  plumbing 
installation.  It  is  recommended  that  the  plumbing  department  of  the 
state,  which  is  now  part  of  the  state  health  department,  be  transferred 
to  the  division  of  workshops  and  factories,  thus  centralizing  and  unify- 
ing all  building  inspection. 

Plans  for  all  public  buildings  —  schools,  churches,  theaters,  etc. — 
must  be  submitted  to  the  division  of  workshops  and  factories  for  ap- 
proval before  the  building  can  be  constructed.  There  is  no  inspection  of 
the  actual  structures  themselves,  because  there  are  not  enough  inspectors 
to  permit  it.  Occasionally  an  inspector,  while  in  the  field,  may  visit 
such  buildings  in  the  course  of  construction  and  report  upon  it.  Whether 
or  not  the  division  of  workshops  and  factories  shall  adopt,  as  a  mat- 
ter of  regular  policy,  the  inspection  of  all  public  buildings  during  the 
course  of  construction,  is  open  to  question.  In  those  cities  where  local 
building  departments  are  maintained,  adequate  protection  is  given  the 
public  by  the  inspection  of  all  buildings  in  the  course  of  construction. 
It  would  entail  considerable  expense  and  the  employment  of  a  consider- 
able force  of  men  to  enforce  the  state  building  code  in  those  places 
where  there  are  no  facilities  for  inspection.     In  fact,  a  proper  enforce- 


26o  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

ment  of  the  building  code  by  inspectors,  sent  out  from  Columbus  seems 
problematic,  because  inspections  could  not  be  made  with  sufficient  fre- 
quency. It  seems,  therefore,  that  the  architects  should  be  made  respon- 
sible for  carrying  out  the  provisions  of  the  building  code  and  for  erect- 
ing a  structure  in  conformance  with  the  plans  and  specifications  sub- 
mitted. In  this  connection,  consideration  should  be  given  to  the  licensing 
of  architects  and  engineers  so  that  all  buildings  being  constructed  would 
be  erected  under  capable  and  responsible  supervision. 

OFFICE   PROCEDURE 

The  office  is  in  charge  of  a  chief  clerk,  who  is  responsible  for  the 
issuance  of  all  orders  for  the  correction  of  bad  conditions  in  factories. 
The  orders  sent  in  by  inspectors  are  edited  and  transmitted  to  their 
proper  destination,  and  copies  for  follow-up  kept  in  the  office.  The 
work  seems  to  be  well  taken  care  of  and  kept  in  hand.  There  is,  how- 
ever, one  recommendation  that  seems  pertinent,  namely,  to  install  the 
same  recording  and  follow-up  system  on  factories  in  general,  as  was 
installed  by  the  chief  clerk  in  the  inspection  of  explosives.  This  system 
serves  as  an  excellent  means  of  checking  up  the  number  and  frequency 
of  inspections. 

PROPOSED   ORGANIZATION 

The  organization  and  operation  of  the  division  of  workshops  and 
factories  has  two  fundamental  weaknesses.     They  are, 

1.  Lack  of  qualified  help. 

2.  Lack  of  definite  direction  in  inspection  service. 

Safety  engineering  has  become  in  late  years  a  specialized  profession, 
or  at  least  there  are  persons  employed  in  various  plants  and  factories, 
whose  sole  business  it  is  to  introduce  safety  measures  into  the  operation 
and  to  prevent  injuries  through  accident  as  far  as  possible.  Safety  in 
its  broader  sense  and  the  one  to  be  considered  by  the  industrial  com- 
mission means  the  presence  of  all  those  factors  contributing  to  the  com- 
fort and  well-being  of  the  employe  and  the  elimination  of  those  factors 
detrimental  to  his  well-being.  This  makes  the  field  a  broad  one,  and  in- 
volves the  employment  of  various  types  of  abilities  and  experiences. 

The  larger  factories  have  safety  engineering  departments,  where 
highly  qualified  men  are  employed.  If  the  industrial  commission  wants 
to  accomplish  results  in  safety  work  it  must  provide  employes  who  can 
speak  with  authority  and  whose  judgments  will  be  respected  by  em- 
ployers throughout  the  state.  There  is  no  desire  to  disparage  the  quali- 
fications of  the  present  employes  of  the  division  of  workshops  and  fac- 
tories; they  are  doing  what  they  were  employed  to  do,  and  are  doubt- 
less earning  the  money  paid  them.  In  speaking  of  the  lack  of  qualified 
help,  reference  is  not  made  to  the  inspectors  now  employed.  Reference 
is  made  to  technically  trained  men  of  high  ability,  whFch  the  division 


ON  ADMINISTRATIVE  REORGANIZATION  261 

of  workshops  and  factories  does  not  now  employ  in  its  inspection  work, 
and  which  it  should.  The  chief  of  this  division  should  have  a  staff  of 
specialists,  who  can  pass  authoritatively  upon  problems  brought  in  by 
the  inspectors  in  the  field.  The  inspectors  can  continue  to  be  employed  • 
in  their  present  capacity,  but  to  solve  problems  which  they  are  not 
qualified  to  handle  this  staft  of  specialists  will  be  used. 

In  connection  with  the  employment  of  this  staff,  it  is  recommended 
that  the  distinction  between  the  safety  engineers  and  the  factory  in- 
spectors be  abolished,  and  that  the  state  be  divided  into  districts,  each 
under  a  factory  inspector,  who  would  cover  every  establishment  in  his 
territory.  All  inspectors  can  be  trained  to  discover  defects  and  to  report 
them  and  even,  if  of  a  minor  nature,  to  suggest  the  remedy.  If  of  a 
complicated  nature,  the  help  of  the  specialists  would  be  called  in. 

The  big  factor  in  all  safety  work  is  education,  and  for  this  purpose 
the  safety  engineers  seem  no  better  qualified  than  do  the  general  factory  ■ 
inspectors.  The  organization  of  safety  committees  and  the  preaching 
of  safety  require  qualifications  that  the  ordinary  mechanic  does  not 
possess,  and  the  safety  engineers  were  picked  for  their  places  merely 
because  they  had  a  better  knowledge  of  machinery  than  the  ordinary 
factory  inspector. 

Women  inspectors,  under  any  form  of  organization  and  irrespective 
of  how  the  state  is  divided  for  factory  inspection  purposes,  will  be  needed 
to  cover  those  establishments  where  women  and  children  are  employed 
in  large  numbers.  There  is  an  apparent  need  for  more  women  in- 
spectors. 

It  is  recommended  that  the  function  of  examining  plans  be  placed 
in  a  plan  examining  bureau  of  the  division  of  workshops  and  factories. 

Bake  shop  inspection  is  a  function  properly  belonging  to  the  depart- 
ment of  health  and  should  be  transferred  to  that  department. 

Lack  of  direction  and  of  definite  planning  is  inevitable  because  the 
inspectors  have  no  definite  basis  for  their  inspections.  The  inspectors  go 
from  factory  to  factory  looking  for  defects  and  ordering  correction, 
visiting  some  factories  every  year  and  others  once  in  a  number  of  years. 

If  the  division  of  workshops  and  factories  had  an  unlimited  number 
of  inspectors  the  present  method  might  be  effective,  but  with  a  too  limited 
corps  of  inspectors  all  waste  motion  is  particularly  costly.  It  is  urged, 
therefore,  that  the  accident  statistics  be  furnished  the  division  of  work- 
shops and  factories  currently,  and  that  this  data  be  used  as  the  basis  for 
planning  the  work  of  the  inspectors.  Then  and  then  only  will  the  in- 
spection department  know  specifically  what  its  problems  are,  and  where 
they  are,  and  so  be  able  to  direct  the  efforts  of  the  inspectors  to  the 
maximum  advantage.  The  present  hit  or  miss  plan  should  be  abolished 
at  once. 

It  is  recommended  that  the  inspection  division — workshops  and  fac- 
tories, boiler   inspection,   mines  —  be   consolidated   into  one   inspection 


262  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

division  under  the  direction  of  one  chief.  In  the  last  analysis  all  inspec- 
tions have  the  same  end  in  view  and  the  principle  and  philosophy  govern- 
ing them  is  a  common  one.  It  is  recognized  that  mine  inspection  requires 
the  services  of  specialized  inspection,  and  that  for  practical  reasons, 
boiler  inspection  may  have  to  be  continued  as  at  present,  but  the  con- 
centration of  supervision  in  one  head  will  bring  together  all  of  the  forces 
in  the  industrial  commission  to  work  on  the  problem  of  reducing  acci- 
dents and  promoting  the  safety  and  welfare  of  all  employes.  This  con- 
solidation within  the  industrial  commission,  to  which  it  is  recommended 
be  added  the  functions  of  the  fire  marshal's  department,  will  serve  more 
than  any  other  one  measure,  to  make  the  promotion  of  the  welfare  and 
the  safeguarding  of  the  lives  of  employes  and  frequenters  of  public 
buildings,  the  serious  business  it  really  is,  requiring  the  earnest  and  con- 
tinuous application  of  high  ability.  The  economy  effected  will  be  in  in- 
creasing the  returns  for  the  money  expended.  At  least  the  same  will  be 
true  by  consolidating  all  ofifice  work  under  one  chief  clerk,  although  reduc- 
tions in  the  force  to  do  the  same  work  now  being  done  in  the  individual 
offices,  can  probably  be  made. 

It  is  further  recommended  that  the  work  of  this  inspection  division 
be  co-ordinated  and  correlated  more  intimately  with  the  rate  making 
branch  of  the  compensation  division. 

It  seems  that  the  position  and  duties  of  the  "director  of  safety"  are 
taken  too  lightly.  The  duties  of  this  position  are  basic  and  can,  if  fully 
carried  out,  increase  the  value  of  the  inspection  division  ioo%.  This 
position  requires  a  good  propagandist  who  should  be  furnished  adequate 
funds  and  facilities  for  impressing  and  keeping  impressed  employers  and 
employes  with  the  gospel  accident  prevention. 

Division  of  Boiler  Inspection 

The  function  of  this  division  is  to  inspect  all  boilers  used  in  the 
state  of  Ohio,  to  examine  applicants  for  the  position  of  boiler  inspectors, 
to  formulate  rules  governing  the  operation  of  boilers  and  to  give  permits 
to  manufacturers  to  make  the  Ohio  standard  boiler. 

organization 

The  division  consists  of  the  chief  inspector,  an  assistant  chief  in- 
spector, eight  general  inspectors  and  the  office  force,  consisting  of  a  chief 
clerk,  typists  and  bookkeeper. 

In  addition  to  the  eight  inspectors  employed  by  the  boiler  division, 
the  chief  inspector  has  responsible  to  him  250  inspectors  who  are  paid 
and  employed  by  the  boiler  insurance  companies.  The  work  done  by 
these  250  inspectors  is 'the  same  as  that  of  the  eight  state  inspectors  and 
the  control  of  these  inspectors  by  the  chief  inspector  is  as  close  and  as 
rigid  as  the  control  of  his  own  inspectors. 


I 


ON    ADMINISTRATIVE   REORGANIZATION  263 

The  State  inspectors  inspect  all  boilers  not  covered  by  the  insurance 
companies. 

OPERATION 

Each  inspector  inspects  from  400  to  450  boilers  twice  each  year, 
once  internally  and  once  externally,  altogether  20,000  boilers  being  in- 
spected twice  annually. 

The  state  receives  $5.00  for  each  internal  and  $2.00  for  each  ex- 
ternal inspection  made  by  its  inspectors.  In  addition  to  this  a  fee  of 
$1.00  is  charged  for  a  certificate. 

For  the  survey  of  this  office,  it  was  found  that  the  work  is  very  well 
in  hand  and  that  every  boiler,  except  the  small  non-dangerous  type,  is 
inspected. 

A  card  record  of  each  boiler  in  the  state  is  kept  and  every  lapse  of 
inspection  is  easily  followed  up.  Each  inspector  has  a  card  record  in 
his  office  of  all  boilers  that  he  must  inspect  and  regularly  twice  a  year 
these  inspections  are  made.  Should  the  inspector  fail  to  make  an  in- 
spection when  it  is  due,  he  is  reminded  by  the  central  office  that  the 
inspection  has  been  overlooked.  All  the  work  is  routed  from  the  Co- 
lumbus office.  Inspectors  send  in  weekly  reports  of  the  number  of 
boilers  inspected  and  their  itinerary  for  the  following  week.  This 
itinerary  must  be  followed  closely  because  boiler  operators,  upon  notice 
from  inspectors,  prepare  for  inspection  at  the  specified  time. 

As  soon  as  a  boiler  is  shipped  into  the  state,  a  certificate  describing 
the  boiler  is  sent  from  the  factory  to  the  Columbus  office,  and  the  boiler 
is  not  to  operate  until  an  inspector  examines  it  to  see  that  it  comes  up  to 
specifications.  This  special  inspection  costs  the  owner  of  the  boiler 
$5.00,  and  when  the  inspection  is  made  a  serial  number  is  given  as  an 
identification  for  future  inspections. 

If  the  statement  of  the  chief  inspector,  that  a  small  low  pressure 
boiler  is  non-dangerous  and  does  not  need  inspection  is  taken  for  granted, 
it  may  be  stated  that  the  work  of  the  division  of  boiler  inspection  is 
done  efficiently  and  at  all  times  kept  well  in  hand.  The  division  con- 
trols every  boiler  that  comes  into  the  state,  notes  when  it  is  shipped  in, 
examines  it  before  it  is  put  into  operation  and  in  future,  by  its  system 
of  follow-up,  keeps  a  close  check  on  the  condition  of  the  boiler. 

BOARD   OF   BOILER   RULES 

The  board  of  boiler  rules  consists  of  five  members,  a  manufacturer 
of  boilers,  a  boiler  owner,  a  stationary  engineer,  a  representative  of  the 
insurance  companies,  and  the  chief  inspector  of  the  boiler  division  who 
is  chairman.  It  meets  every  three  months  to  examine  applicants  for 
positions  of  boiler  inspector,  to  formulate  rules  governing  operation  of 
boilers,  and  to  prepare  specifications  for  the  Ohio  standard  boiler. 

Should  the  chief  inspector  withdraw  from  any  manufacturer  the 


264  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

permit  for  the  manufacturing  of  the  Ohio  standard  boiler,  the  latter 
has  the  right  to  appeal  to  the  board  of  boiler  rules  for  reinstatements. 
There  are  a  number  of  exemptions  to  the  inspection  of  the  high 
pressure  boilers,  notably  those  used  in  farm  machinery.  The  law  should 
.  be  amended  to  eliminate  the  exemptions.  This  may  mean  adding  in- 
spectors, but  would  be  worth  while. 

PROPOSED  ORGANIZATION 

It  is  recommended  that  the  division  of  boiler  inspection  be  made  an 
integral  part  of  the  division  of  workshops  and  factories  and  public  build- 
ing inspection,  in  accordance  with  the  recommendations  in  the  forego- 
ing chapter. 

DIVISION    OF   MINES 

The  inspection  of  mines,  with  respect  to  safety  and  the  welfare  of 
the  men,  is  carried  on  by  the  division  of  mines. 

ORGANIZATION  AND  OPERATION 

The  organization  consists  of  a  chief  deputy,  twelve  district  deputies, 
one  oil  and  gas  well  inspector,  one  mine  recue  car  attendant  and  the 
office  force,  consisting  of  a  chief  clerk  and  four  other  clerks. 

Each  mine  is  inspected  at  least  once  a  year  and  reinspections  as 
the  occasion  demands.  Every  year  operators  must  send  in  to  the  division 
of  mines  a  map  showing  the  exact  condition  of  the  mine  as  of  a  par- 
ticular date. 

In  1917  about  1,000  mines  were  in  operation  in  Ohio  and  in  1918 
there  were  1,600  in  operation. 

In  addition  to  the  inspection  of  mines,  it  is  the  duty  of  this  division 
to  insure  the  sealing  up  of  all  oil  wells  in  the  coal  producing  district. 
The  one  oil  and  gas  well  inspector  gets  a  record  of  all  oil  wells  drilled 
in  a  county  and  this  record  is  checked  up  in  the  office  to  see  whether  or 
not  permits  had  been  obtained  to  drill  these  wells.  It  would  be  desirable 
to  visit  all  oil  wells  to  see  that  they  had  been  properly  plugged,  but  it  is 
impossible  to  cover  the  territory  with  this  one  man.  Occasionally,  where 
it  is  important,  an  inspector  is  sent  to  see  that  the  oil  wells  are  properly 
plugged.  The  chief  inspector  states  that  one  other  gas  and  oil  well 
inspector  would  permit  of  inspecting  the  sealing  of  all  oil  and  gas  wells. 

The  inspection  of  the  records  of  this  division  showed  that  the  work 
was  effectively  followed  up  and  the  mines  regularly  inspected.  The 
work  of  inspection  is  well  directed.  It  is  recommended  that  an  additional 
oil  and  gas  well  inspector  be  granted.  In  accordance  with  the  recom- 
mendations in  the  foregoing  chapters,  it  is  recommended  that  the  division 
of  mines  be  made  an  integral  part  of  the  division  of  workshops,  factories 
and  public  buildings. 


ON   ADMINISTRATIVE   REORGANIZATION  265 


DIVISION   OF   STEAM    ENGINEERS 

The  functions  of  the  examiner  of  engineers  is  to  examine  all  ap- 
plicants who  wish  to  act  as  steam  engineers,  to  make  inspections,  to  see 
that  all  operators  of  steam  engines  are  properly  licensed. 

ORGANIZATION   AND   OPERATION 

The  organization  consists  of  the  chief  deputy,  the  assistant  chief 
deputy,  ten  district  deputies  and  the  office  force  of  two  clerks.  In  order 
to  qualify  for  an  examiner  of  engineers,  an  employe  must  have  had 
seven  years'  practical  experience  as  a  steam. engineer. 

The  ten  district  deputies  are  each  assigned  a  district  where,  usually 
in  the  district  office  of  the  industrial  commission,  they  examine,  every 
Monday  morning,  applicants  for  steam  engineer's  license.  These  ex- 
aminations are  written,  unless  the  applicant  cannot  write,  when  an  oral 
examination  is  given;  and  if  the  applicant  cannot  understand  English, 
an  oral  examination  through  an  interpreter,  at  the  expense  of  the  ex- 
aminee, is  given. 

A  fee  for  the  examination  is  $2.00,  and  an  annual  fee  of  $2.00  is  paid 
by  each  licensed  engineer  for  renewal  of  the  license.  The  examination 
papers  are  sent  into  the  main  office  and  filed. 

The  system  in  the  office  is  good,  permitting  of  an  effective  follow-up. 

While  the  examining  phase  of  the  examining  engineer's  work  is 
necessary,  there  is  no  reason  for  making  inspections  to  find  engineers 
operating  without  a  license.  Every  boiler  is  inspected  by  the  division  of 
boiler  inspection,  which  means  that  every  boiler,  which  has  an  operator, 
is  visited  twice  a  year.  This  boiler  inspector  can  very  easily  and  without 
any  loss  of  time  ascertain  whether  or  not  the  engineer  is  licensed. 

For  the  purpose  of  examining  applicants  two  or  three  examining 
engineers,  who  would  devote  all  their  time  to  this  work,  could  be  em- 
ployed. Two  men  working  six  days  a  week  could  do  the  work  of  ten 
men  examining  but  one  day  a  week.  It  is,  therefore,  recommended  that 
the  division  of  steam  engineers  be  abolished  and  that  the  examining  of 
applicants  be  delegated  to  two  engineers  employed  solely  for  this  purpose. 
Further,  that  the  examining  engineer  be  transferred  to  the  division  of 
workshops  and  factories. 

4.    DEPARTMENT  OF  INVESTIGATION  AND  STATISTICS. 
Frequently  names  convey  no  meanyig.     This  is  one  of  those  in- 
stances.    The  department  of  investigation  and  statistics  is  composed  of 
three  divisions : 

1.  Division  of  investigation  and  statistics 

2.  Division  of  employment  offices 

3.  Division  of  mediation  and  arbitration 


266  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  head  of  this  department  is  called  the  chief  statistician,  who, 
with  the  aid  of  an  assistant  statistician,  directs  the  work  of  the  first  two 
named  divisions.  The  division  of  mediation  and  arbitration  exists  merely 
in  name.  The  term  chief  and  assistant  statistician  do  not  describe  the 
qualifications  of  the  incumbents  of  these  positions.  The  chief  statistician 
is  the  state  mediator  in  labor  disputes,  the  state  director  of  employment 
offices,  and  the  chief  of  the  statistical  division. 

Division  of  Investigation  and  Statistics 

This  division  makes  investigations  and  surveys  of  employments  and 
conditions  of  employment^  collects  and  publishes  labor  statistics  and 
publishes  reports  of  its  surveys  and  investigations.  It  has  a  regular 
mailing  list  of  1,750,  and  special  mailing  lists  for  sending  information 
of  particular  interest  to  certain  individuals,  trades,  industries,  etc.  It 
serves  as  a  general  information  bureau  for  the  state  on  labor  conditions. 
Fourteen  persons  are  employed,  including  two  special  investigators,  who 
are  in  the  field  gathering  data,  making  special  investigations,  etc. 

Accident  statistics  formerly  compiled  in  this  division  are  now  being 
collected  by  the  accident  laboratory  of  the  actuarial  division. 

The  industrial  commission  needs  a  well  organized  statistical  division, 
to  be  directed  by  a  qualified  statistician.  Its  work  cannot  be  carried 
on  effectively  unless  it  has  historical  facts  upon  which  to  base  its  program. 
In  the  last  analysis,  the  function  of  the  commission  is  to  promote  the 
health  and  safety  of  all  employes  in  Ohio,  and  to  approach  and  carry 
out  this  function  it  must  plan  a  constructive  program.  This  can  be 
done  only  when  the  commission  knows  definitely  and  accurately  what  is 
wrong  and  why  it  is  wrong. 

In  connection  with  this  compilation  and  analysis  of  statistics,  the 
commission  should  have  a  limited  staff  of  investigators,  who  can  be  used 
at  any  and  at  all  times  to  study  special  problems  in  connection  with 
employment  and  labor. 

It  is  recommended  that  the  division  of  statistics  and  investigation  be 
organized  as  a  separate  division  under  the  direction  of  a  qualified  stat- 
istician, responsible  directly  to  the  chief  administrator;  that  this  division 
be  considered  the  official  and  only  statistical  agency  for  the  industrial 
commission  and  that  all  statistics,  including  accident,  be  compiled  and 
analyzed  here.  It  must  be  recognized,  however,  that  unless  used  the 
compilation  of  statistics  is  a  waste  of  time  and  money.  It  is  unfortunate 
that  the  valuable  data  collected  in  the  "accident  laboratory"  cannot, 
because  of  lack  of  help,  be  made  usable  by  the  inspection  branches  of 
the  industrial  commission. 


ON    ADMINISTRATIVE   REORGANIZATION 


267 


Division  of  Employment  Offices 
On  a  cooperative  basis  with  seven  cities,  the  state  of  Ohio  operates 
free  pubHc  employment  bureaus,  the  state  furnishing  35  employes  and 
the  cities  2^.    In  all  instances  the  superintendent  is  a  state  employe. 

state-city  employment  bureaus 

Staik.  City 

Q{ty                                                                                               Employes  Employes 

Akron   3  2 

Cincinnati '^ 

Cleveland I  ^^ 

Columbus    ^ 

Dayton    • 3  6 

Youngstown    ^  ^ 

Toledo    5  2 

The  employment  division  also  inspects,  supervises  and  licenses 
private  labor  exchanges,  of  which  there  are  49  in  the  state.  Continuation 
and  extension  of  the  public  employment  service  is  recommended,  but  only 
upon  the  condition  that  the  individual  employment  bureaus  become  active 
factors  in  the  employment  situation  in  their  respective  localities,  and  that 
the  employment  division  do  likewise  in  the  state  as  a  whole. 

The  employment  bureau  in  Dayton  is  an  example  of  initiative  and 
activity  of  positive  efforts  being  made  to  bring  the  job  and  the  jobless 
one  together,  of  being  a  clearing  house  for  all  kinds  of  labor  and  to  a 
more  limited  extent  of  office  help  in  the  city.  This  bureau  would  be 
missed  if  discontinued.  Practically  the  reverse  is  true  of  the  Akron  em- 
ployment bureau,  due  in  large  measure  to  the  industrial  situation.  These 
were  the  only  state  employment  bureaus  visited. 

A  unified  system  of  state  employment  bureaus  is  recommended  be- 
cause the  whole  state  can  be  used  as  a  unit  in  finding  employment  for 
the  unemployed  and  employes  for  vacant  jobs.  In  this  manner  not  only 
are  both  employers  and  employes  benefited,  but  exploitation  of  both, 
particularly  of  the  latter,  is  eliminated. 

Looking  ahead,  it  is  believed  that  the  state  employment  service 
should  become  the  vocational  adviser  to  the  institutions  where  technical 
vocational  training  is  carried  on,  and  to  the  people  generally.  The  re- 
habilitation of  those  disabled  in  industry  and  of  the  physically  handi- 
capped seems  to  be  the  logical  field  for  the  public  employment  service. 
Only  as  a  positive,  constructive  force  has  it  a  call  for  support  from  public 
funds;  as  a  passive  agent  locally  between  job  and  jobless,  the  public 
employment  bureau  hardly  merits  public  support.  All  this  will  take  more 
money  and  a  stafif  of  more  highly  qualified  employes,  but  nothing  worth 
while  can  be  obtained  for  nothing. 

Ac  an  immediate  step  in  reorganization  it  is  recommended  that  the 
division  of  employment  be  made  a  distinct  and  separate  division  under 


268  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

the  direction  of  the  present  chief  statistician,  whose  title  should  be 
changed  to  that  of  director  of  the  employment  division,  or  director  of  the 
state  employment  service. 

Division  of  Mediation  and  Arbitration 

This  division  as  such  does  not  exist.  It  happens  that  the  chief  stat- 
istician is  used  as  chief  mediator  in  mediation  and  arbitration  of  labor 
disputes,  and  occasionally  one  of  the  investigators  of  the  division  of 
statistics  and  investigation  may  be  used.  For  the  year  ending  June  30, 
1919,  this  "division"  acted  as  mediator  in  20  labor  disputes,  involving 
19,000  employes.  Mediation  effected  satisfactory  settlements  in  13  of 
the  disputes. 

Section  871-22,  paragraph  8,  of  the  General  Code  provides  that  the 
industrial  commission  shall  have  full  power,  jurisdiction  and  authority 
"to  do  all  in  its  power  to  promote  the  voluntary  arbitration,  mediation 
and  conciliation  of  disputes  between  employers  and  employes"  .... 
"It  may  appoint  temporary  boards  of  arbitration"  ....  "The  com- 
mission shall  designate  a  deputy  to  be  known  as  chief  mediator  .   .   .   .". 

To  carry  out  the  provisions  of  the  section  of  the  law  quoted  above, 
it  is  not  necessary  to  have  a  permanent  division  of  mediation.  The 
commission  can  designate  any  one  of  its  deputies  as  chief  mediator,  and 
because  of  his  success  in  this  work  it  probably  would  be  advisable  to 
continue  the  present  chief  statistician  or  director  of  the  employment 
division  in  this  capacity,  if  the  recommendation  of  this  report  is  carried 
out.  It  is  recommended,  however,  that  the  "division  of  mediation  and 
arbitration"  be  abolished.    This  would  merely  be  abolishing  a  name. 

5.    DEPARTMENT  OF  FILM  CENSORSHIP. 

ORGANIZATION 

The  department  of  film  censorship  is  composed  of  three  members 
appointed  by  the  governor.  This  is  for  a  term  of  two  years.  The  total 
personnel  of  the  department  is  twelve.  It  expended  $19,000  during  the 
last  fiscal  year,  and  had  an  income  from  licenses  of  $25,000. 

POWERS  AND  DUTIES 

The  board  of  film  censorship,  as  the  name  signifies,  are  charged 
with  the  duty  of  reviewing  all  moving  picture  films  before  exhibited  in 
Ohio,  and  are  empowered  to  reject  for  public  exhibition  in  Ohio  any 
moving  picture  they  may  for  any  reason  deem  unfit  for  exhibition.  They 
may  recall  approval  for  any  film  should  it  be  deemed  advisable  to  do  so. 

The  board  reviews  films  individually.  If  approved,  the  individual 
recommendation  is  final.  If  rejected,  it  is  reviewed  by  the  whole  board, 
whereupon  a  vote  of  two  is  necessary  for  rejection.  A  vote  of  two  is 
also  necessary  for  the  recall  of  a  film. 


ON   ADMINISTRATIVE   REORGANIZATION  269 

For  the  year  ending  June  30,  1919,  23,319  films  were  approved,  123 
were  rejected,  and  in  2,791  eliminations  were  made. 

Granting  that  the  philosophy  and  principle  of  this  plan  of  film 
censorship  is  sound,  the  board  of  film  censors,  when  the  survey  was 
made,  seemed  to  be  working  efifectively.  If  the  attitude  of  the  chairman 
of  the  board  is  reflected  in  all  of  its  work, 'it  may  be  assumed  that  the 
interests  of  the  public  are  preserved  without  destroying  or  discouraging 
the  legitimate  pursuits  of  a  great  industry. 

Logically,  this  department  should  not  be  a  subdivision  of  the  in- 
dustrial commission.  There  is  no  natural  relationship  to  the  functions 
and  activities  of  the  other  branches  of  the  commission,  and  there  is 
practically  no  administrative  relationship.  The  investigator  cannot  dis- 
cover any  natural  relationship  between  the  board  of  film  censors  and 
any  of  the  other  existing  state  departments,' unless  it  is  a  department 
of  education.  However,  its  inclusion  in  that  department  is  not  to  be 
recommended.  It  is  therefore  recommended  that  the  department  of  film 
censorship  be  operated  as  a  separate  department,  directly  responsible  to 
to  the  governor. 

SUMMARY  OF  RECOMMENDATIONS. 
ADMINISTRATION 

1  —  That  the  three  members  of  the  industrial  commission  devote 

their  time  and  attention  to  the  formulation  of  policies,  and 
to  the  tribunal  functions  in  connection  with  the  hearing 
of  claims,  leaving  the  carrying  out  of  the  policies  and  the 
administration  of  the  machinery  of  the  commission  to  a 
chief  administrator. 

2  —  That  the  duties  ascribed  to  the  position  of  secretary  of 

the  commission  be  such  as  to  make  the  incumbent  of  that 
position  the  chief  administrator. 
3 —  That  Section  871-14  of  the  General  Statutes  be  amended 
so  as  to  eliminate  the  necessity  or  the  requirement  of  the 
governor's  approval  of  the  employment  smd  compensation 
of  the  employees  of  the  industrieJ  commission. 

4  —  That  all  employes  of  the  industrial  commission,  from  and 

including  the  chief  administrator  down,  be  placed  under 
the  classified,  competitive  service. 

5  —  That   the  industrial  commission   carry   on   an   aggressive, 

educational  campaign,  interpreting  to  aU  employes  in  the 
state  the  provisions  of  the  workmen's  compensation  law, 
and  informing  them  as  to  what  steps  must  be  taken  to 
receive  compensation  or  aid  when  injury  is  sustainecL 


270 


REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 


workmen's    COMPENSATION    DEPARTMENT 

I  —  That  the  position  of  superintendent  of  insurance,  or  fund 
manager,  be  created,  the  incumbent  of  this  position  to 
superintend  the  various  divisions  of  the  workmen's  com- 
pensation department  to  the  end  that  they  may  be  operated 
as  a  coordinated  unit. 


IITDUSTRIAL  COMMISSIOH 
(Proposed  Organization) 


£L£CXO£AI£ 


GOVERJIOE 


COMMISSION 
THREE  MEMBKRS 


CHIEF  ADMINISTRATOR 


WORKMEN'S  COMPENSATION 
DEPARTMENT 


DEPARTMENT  OP 
INSPECTION 


SUPERINTENDENT 

OP  INSURANCE 
OR  PUND  MANAaER 


DIVISION  OP 
EMPLOraENT 


DIVISION  OP 
WORKSHOPS 
FACTORIES 

PUBLIC   BLDGS 


DIVISION 
OP  MINES 


DIVISION 
OP  CLAIMS 


ACTUARIAL 
DIVISION 


DIVISION  OP 

STATISTICS 

INVESTIGATION 


DIVISION 

OP 
MEDICAL 
INSPECTION 


DIVISION 


AUDITING 
ACCOUNTING 


2  —  That  the  division  of  claims  take  the  initiative  in  securing 

from  claimants  information  necessary  to  put  claims  through 
for  settlement. 

3  —  That  the  claim  reviewers,  referees,  and  the  division  of  medi- 

cal inspection,  be  placed  under  the  immediate  supervision  of 
the  director  of  clainis. 


ON   ADMINISTRATIVE   REORGANIZATION  2/1 

4  —  That  the  field  force  be  increased  to  enable  the  division  of 
claims  to  secure  from  cladmants  necessary  data  in  order 
that  the  payment  of  claims  may  be  expedited. 

MEDICAL  INSPECTION 

I  —  That  the  medical  inspection  force  be  increased  in  order  that 
prompt  and  frequent  visits  to  the  injured  may  be  made, 
to  result  not  only  in  expediting  the  payment  of  claims,  but 
also  in  discontinuing  compensation  at  the  earliest  possible 
time. 

DEPARTMENT    OF    INSPECTION 

1  —  That  the  division  of  steam  engineers  be  abolished,  but  that 

two  or  three  deputies  be  retained  to  devote  all  their  time 
to  examining  applicants  for  engineers'  licenses. 

2  —  That  the  remaining  inspection  divisions  —  wrorkshops  and 

factories,  boiler  inspection,  mines  —  be  consolidated  into 
one  inspection  department,  and  be  under  the  direction  of 
a  chief  inspector. 

3  —  That  the  chief  inspector  of  the  department  of  inspection  be 

furnished  a  staff  of  qualified,  technical  assistants,  so  that 
the  work  of  this  department  may  be  carried  on  more  ef- 
fectively. 

4  —  That  correlation  be  established  between  the  inspection  de- 

partment and  the  division  which  collects  amd  analyzes  sta- 
tistics on  accidents  and  injuries. 

5  —  That   bake   shop    inspection    be    transferred   by   legislative 

action  to  the  state  department  of  health. 

6  —  That  more  aggressive  euid  extensive  educational  publicity 

in  reference  to  prevention  of  accidents  be  carried  on.  This 
means  increasing  the  facilities  of  the  "safety  director*'  who 
is  charged  with  this  duty. 

DEPARTMENT  OF  INVESTIGATION  AND  STATISTICS 

1  —  That  this  department  be  divided  into  two  independent  di- 

visions, —  division  of  employment,  smd  division  of  statis- 
tics and  investigation,  —  each  under  a  separate  officer. 

2  —  That  the  division  of  mediation  be  abolished.     This  means 

merely  the  elimination  of  a  name. 

3  —  That  the  division  of  employment  be  made  a  more  positive 

factor  in  the  employment  activities  of  the  state. 

4  —  That  the  division  of  statistics  and  investigation,  under  the 

direction  of  a  qualified  statistician,  be  made  the  statistical 


272  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

division  for  all  the  divisions  of  the  industrial  commission, 
and  that  it  include  in  its  v^rork  the  collection  and  analysis 
of  accident  statistics. 
5  —  That  the  division  of  statistics  and  investigation  employ  a 
staff  which  can  be  called  upon  to  make  investigations  of 
amy  kind  deemed  necessary  by  the  industrial  commission. 


1  — That  the  general  assembly  consider  the  extension  of  state 

insurance  to  occupational  diseases. 

2  —  That  the  scale  of  compensation  to  all  employes  of  the  com- 

mission be  increased,  in  order  that  more  qualified  help  can 
be  secured. 

3  —  That  the  department  of  film  censorship  be  operated  as  a 

separate  department,  directly  responsible  to  the  governor. 

In  March,  1919,  an  actuarial  audit  of  the  Ohio  state  insurance  fund 
was  made  by  Mr.  E.  H.  Downey.  In  December,  1919,  Mr.  S.  H.  Wolfe 
made  a  study  of  the  state  insurance  for  the  joint  legislative  committee 
on  administrative  reorganization. 

The  report  here  presented  is  based  upon  a  study  made  independently 
of  the  two  mentioned  above.  If  any  conclusions  arrived  at  in  this  study 
coincide  with  those  reached  and  presented  in  either  of  the  two  former 
reports,  it  is  because  they  are  based  upon  similar  findings  revealed  by 
the  investigations. 


OHIO  STATE  INSURANCE  FUND 

By  S.  H.  WOLFE 


The  most  important  question  to  determine  at  the  outset  is  the  sol- 
vency of  the  fund. 

IS   THE   FUND   SOLVENT? 

In  determining  the  solvency  of  any  organization  recourse  must  be  had 
to  the  books  of  account  which  contain  the  entries  necessary  for  the 
determination  of  its  financial  condition.  A  properly  prepared  system  of 
accounts  consists  of  subsidiary  records  containing  the  details  of  the 
transactions  and  a  system  of  controlling  accounts  which  enable  those  in 
charge  to  learn  its  financial  condition  and  to  determine  whether  the  sub- 
sidiary records  are  being  kept  in  an  accurate  manner. 

Your  attention  is  invited  to  the  fact  that  the  Ohio  state  insurance 
fund  maintains  no  proper  accounting  system.  It  has  no  ledger  containing 
a  summary  of  its  transactions  from  which  a  trial  balance  can  be  taken, 
the  only  ledger  in  the  office  being  a  policy-holders'  record,  which  shows 
the  amounts  charged  against  each  risk  and  the  subsequent  adjustments. 
It  has  no  books  of  record  from  which  can  be  readily  determined  the  fac- 
tors necessary  for  a  determination  of  its  financial  condition.  The  audit- 
ing department  —  which  would  seem  to  be  the  most  logical  place  for  the 
lodgment  of  such  books  of  record  —  is  unable  to  furnish  any  information 
and  it  was  stated  that  the  actuarial  department  handled  such  matters. 

In  the  actuary's  department  certain  information  is  punched  on  cards 
in  order  that  the  cards  may  afterwards  be  sorted  by  machines  and  the 
totals  tabulated.  No  permanent  books  of  account  are  kept  here  and  the 
only  way  to  obtain  information  dealing  with  losses,  additional  premiums 
and  the  various  other  items  necessary  for  the  financial  exhibit,  is  to  sort 
thousands  of  cards  and  obtain  the  information  from  the  tabulating  ma- 
chine. No  control  records  are  kept  and  the  danger  of  relying  exclusively 
upon  cards  and  loose  sheets  containing  totals  is  too  manifest  to  require 
extended  comment. 

While  for  the  reasons  stated  above  it  is  impossible  to  prepare  a 
financial  statement  based  upon  the  records  of  the  company  with  the  con- 
fidence of  correctness  which  would  result  from  a  statement  drawn  from 
a  properly  kept  system  of  accounts,  I  have  prepared  a  balance  sheet 
which  I  believe  represents  the  condition  of  the  fund  as  I  have  been  able 
to  determine  it  and  I  submit  it  with  the  foregoing  reservations : 
18  273 


274  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

BALANCE   SHEET   OF   FEBRUARY   28,    I9I9- 

Bonds   owned    $10,891,601 

Time  deposits   in  banks v 5.087,000 

Cheque  deposits   in   banks 871 ,646 

Premiums  in  course  of  collection  — 

Private  insured  employers 2,256,550 

Self    insured    employers 191,746 

State    and    counties 226,902 

Accrued    interest    (estimated) 100,000 

$19,625,445 
Reserved  for  unpaid  claims  — 

Private    insured    employers $12,183,011 

State   and   counties .' 307,521 

Outstanding   claim   zvarrants 255,182 

Unearned  premiums  — 

Private    insured    employers 2,616, 143 

Balance  in  state  and  counties  fund 335 ,  937 

Statutory   surplus    fxmd ' 2,783,965 

General  surplus  available  for  contingencies  and  distribution 1,143,683 

$19,625,445 

To  answer  yv'ir  question  categorically,  therefore,  I  am  of  the  opin- 
ion that  at  the  time  stated  the  fund  was  solvent  and  in  possession  of  a 
substantial  surplus,  but  these  statements  are  made  with  the  reservation 
that  the  absence  of  a  proper  accounting  system  causes  this  to  be  an  opin- 
ion and  not  a  finding  of  fact. 

Compariso)!  zvith  Dr.  Dozvney's  report. 

You  have  submitted  to  me  the  report  of  an  Actuarial-Audit  of  the 
fund  as  of  March  ist  made  by  Dr.  E.  H.  Downey  for  the  Industrial 
Commission  of  Ohio  and  I  will  point  out  the  principal  items  wherein  my 
balance  sheet  dififers  from  that  submitted  by  Dr.  Downey.  At  the  outset 
it  should  be  noted  that  the  surplus  as  shown  in  my  exhibit  is  about 
$250,000  more  than  the  surplus  claimed  by  Dr.  Downey,  but  I  do  not  find 
myself  in  agreement  with  him  as  to  its  division  between  the  statutory 
surplus  fund  and  the  general  surplus  available  for  contingencies  anr^ 
distribution,  as  will  be  noted  from  the  following: 

Ur.  DoTi'ney's  Bal.  sheet 

Item                                                                                report  attached 

Statutory  surplus   fund $1,052,700  $2,783,9«i 

General    surplus    available     for     contini^cncies     and 

distribution     2,620,771  l,143,6?j« 

$3,682,471  $3,927,648 


ON   ADMINISTRATIVE   REORGANIZATION  275 

As  this  is  an  important  matter  —  afifecting  as  it  does  the  advisability 
of  the  proposed  distribution  of  $1,000,000  to  subscribers  —  I  shall  discuss 
the  manner  in  which  I  have  prepared  the  statutory  surplus. 

Sections  1465-54,  paragraph  2  of  the' Ohio  Laws,  provides  that  10% 
of  the  money  that  had  been  paid  into  the  State  Insurance  Fund  up  to  a 
certain  time  and  10%  of  all  that  was  paid  in.  thereafter  was  to  be  set 
aside  for  the  creation  of  a  surplus  until  such  surplus  equaled  $100,000, 
after  which  time  5%  of  all  the  money  paid  into  the  state  insurance  fund 
was  to  be  credited  to  the  surplus  fund  (subsequent  amendments  provided 
that  the  percentage  might  be  decreased  when  in  the  opinion  of  the  Com- 
mission such  a  course  was  advisable  and  as  will  be  pointed  out  hereafter 
the  commission  has  availed  itself  of  that  privilege,  having  reduced  the 
percentage  from  5  to  4). 

Section  1465-69  requires  self  insured  employers  to  contribute  to  the 
state  insurance  fund  such  amounts  as  are  required  to  be  credited  to  the 
surplus  as-'set  forth  in  the  preceding  paragraph.  In  all  of  the  computa- 
tions of  the  commission  these  contributions  by  self  insured  employers 
are  carried  to  the  statutory  surplus  fund. 

The  intent  of  the  legislature  when  it  created  this  statutory  surplus 
fund  is  clear  and  if  any  doubt  existed  as  to  the  logic  of  the  situation  that 
doubt  is  removed  by  the  language  of  the  amendment  to  paragraph  2, 
section  1465-54.  This  surplus  fund  was  to  be  set  aside  for  the  purpose 
of  maintaining  a  solvent  state  insurance  fund  and  for  no  other  purpose. 
If  after  setting  this  aside;  the  earned  premiums  are  more  than  sufficient 
to  meet  all  of  the  losses!  and  more  than  sufficient  to  safeguard  the  sol- 
vency of  the  fund,  the  commission  may  return  such  excess  surplus  to 
the  subscriber,  as  set  forth  in  section  1465-55.  Nowhere,  however,  have 
I  been  able  to  find  any  intention  of  the  legislature  to  permit  this  statutory 
surplus  fund  to  be  used  for  the  purpose  of  paying  current  losses,  although 
a  recent  amendment  (passed  since  the  date  of  the  examination)  provides 
that  if  an  employee  of  a  self  insured  ernployer 

"who  has  suffered  the  loss  of  a  hand,  arm,  foot,  leg  or  eye,  prior 
to  the  injury  for  which  compensation  is  to  be  paid  and  there- 
after suffers  the  loss  of  any  other  of  said  members  as  the  result 
of  an  injury  sustained  in  the  course  of  and  arising  out  of  his 
employment,  the  compensation  to  be  paid  by  such  employer  shall 
be  limited  to  the  disability  suffered  in  the  subsequent  injury, 
additional  compensation,  if  any,  to  be  paid  by  the  industrial 
commission  of  Ohio  out  of  the  surplus  created  by  section  1465- 
54  of  the  General  Code." 

Of  course  if  the  time  should  come  when  the  solvency  of  the  fund 
rfMiJfi  nr>t  hft  nreserved  imless  i+s  losses  were  oaid  from  the  statutory 
surplus  fund,  that  method  of  distribution  would  be  consonant  with  the 


276  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

intent  of  the  legislature.  It  is  pertinent  to  note  that  nowhere  in  the 
sections  quoted  is  this  fund  referred  to  as  a  "catastrophe'  fund  and  I 
have  been  informed  that  the  state  insurance  fund  has  never  had  to  pay 
for  a  catastrophe  as  that  term  is  understood  by  compensation  under- 
writers. (In  a  drowning  accident  seven  employees  were  killed,  but  as 
their  dependents  lived  in  enemy  alien  countries  no  compesation  has  been 
paid  to  them.) 

I  am  of  the  opinion,  therefore,  that  if  the  commission  at  any  time 
feels  that  the  statutory  surplus  fund  is  larger  than  is  necessary,  the  proper 
remedy  is  either  a  reduction  in  the  percentage  of  the  premium  which  is 
to  be  set  aside  or  a  complete  stoppage  in  further  contributions  to  the 
surplus  fund.  Whatever  refunds  are  to  be  made  to  the  subscribers  to 
the  fund  are  to  be  made  from  the  surplus  of  the  earned  premiums,  which 
remain  after  the  statutory  surplus  has  been  set  aside  and  losses  pro- 
vided for. 

As  far  as  I  have  been  able  to  determine  the  resolutions  of  the  indus- 
trial commission  relative  to  the  accumulation  of  the  statutory  surplus 
fund  are  as  follows : 

"copy   of  THE  RECORD  OF   PROCEEDINGS   OF  THE  INDUSTRIAL   COMMISSSION 

OF  OHIO. 

"Mr.  Yaple  offered  the  following  resolution  and  moved  its 

adoption : 

Resolution. 

"Resolved,  That  the  surplus  fund  provided  for  in  section 
7  of  the  Compensation  Law,  shall  consist  of  ten  per  cent  of  all 
the  premiums  paid  into  the  state  insurance  fund  prior  to  De- 
cember 30,  1913,  and  five  per  cent  of  the  net  premiums  paid  into 
said  fund  by  subscribers  thereto  since  said  date;  also  contribu- 
tions to  the  state  insurance  fund  made  by  employers  carrying 
their  own  risks  under  the  provisions  of  Section  22  of  the  Act; 
also  all  interest  collected  by  the  treasurer  of  state  from  the 
deposit  of  the  state  insurance  fund  under  the  State  Deposi- 
tory Act  and  all  interest  collected  from  investments  in  municipal 
or  other  securities  made  by  the  commission. 
Adopted  August  18,  1914. 

(Signed)     Wallace  D.  Yaple. 
Attest : 


Sec. 
"The  foregoing  resolution  is  hereby  approved  Aug.  18,  1914 
(Signed) 
Lloyd  D.  Teeters, 
Ass't  Sec.  (Signed)     James  M.  Cox, 

Governor  of  Ohio. 


ON   ADMINISTRATIVE   REORGANIZATION  277. 

*The  motion  was  seconded  by  Mr.  Hammond  and  adopted 
by  the  following  vote: 

Mr.  Hammond,  aye. 
Mr.  Yaple,  aye." 


"Resolution  of  July  25th,  1919,  reducing  the  statutory 
charge  as  provide  for  by  Section  1465-54,  paragraph  2,  G.  C, 
from  five  percent  to  four  percent. 

"Whereas,  The  statutory  surplus  fund,  as  provided  for 
by  Section  1465-54,  paragraph  2,  G.  C.,  has  now  reached  the 
amount  of  $1,052,700.00;  and 

"Whereas,  In  the  judgment  of  the  commission,  the  five 
percent  charge  heretofore  made,  can  safely  be  reduced  and  yet 
amply  safeguard  the  Ohio  state  insurance  fund. 

"Be  it  resolved,  That  the  five  percent  charge  heretofore 
made  be  reduced  to  four  percent,  the  same  to  bei  effective  con- 
. current  with  the  date  as  of  which  the  July  i,  1919,  rate  com- 
putations were  made. 

"Adopted  July  25th,   19 19. 

(S)     T.  J.  Duffy, 

Chairman. 
Attest : 

(S)     Robert  S.  Hayes, 
Secretary." 

It  will  be  noted  in  the  resolution  of  August  i8th,  1914,  that  all  inter- 
est receipts  are  to  be  credited  to  this  statutory  surplus  fund.  I  have  been 
informed  that  this  has  not  been  repealed,  but  I  do  not  find  that  the  inter- 
est receipts  have  ever  been  set  aside  for  the  statutory  surplus  fund  and 
I  seriously  question  whether  it  was  the  intention  of  the  legislature  to 
have  the  interest  receipts  so  treated.  As  far  as  I  have  been  able  to  deter- 
mine neither  the  actuary  of  the  fund  nor  Dr.  Downey  has  so  used  the 
interest  receipts  and  I  am  in  agreement  with  them  as  to  this  omission. 

In  view  of  the  foregoing  I  am  of  the  opinion  that  at  the  close  of 
business  February  28th,  1919,  the  statutory  surplus  ^und  was  constituted 
as  follows: 

Premiums  collected  from  self-insurers.. $813,290 

Premiums  in  course  of  collection  from  self-insurers...  191,746 
Designated  percentage  (either  10%  or  5%)  of  premiums 

paid   by   subscribers 1,786,825 

$2,791,861 
Less  refund  to  self-insurers 7,896 

Statutory  surplus   fund $2,783,965 


278  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

This  figure  is  to  be  compared  with  the  statutory  surplus  fund  of 
1,052700  set  aside  by  Dr.  Downey  before  the  general  surplus  available 
for  distribution  and  contingencies  is  determined.  It  would  appear  that 
Dr.  Downey  arrived  at  his  figure  as  follows : 

Premiums  collected  from  self-insurers $813,290 

Premiums  in  course  of  collection  from  self-insurers...  191,746 
Designated  percentage  (either  10%  or  5%)  of  premiums 

paid    by    subscribers 1,786,825 

$2,791,861 
From  which  he  has  deducted : 

Losses  paid   $328,229 

Unpaid  losses   1,309,358 

Unearned   premiums   on   self-insurers 101,574      1,739,161 

Statutory   surplus    $1 ,052,700 

What  are  the  losses  for  which  Dr.  Downey  takes  credit  in  the  above 
calculation  in  arriving  at  the  statutory  surplus?  In  the  rules  of  the  in- 
dustrial commission  of  Ohio  governing  merit  rating  system  effective 
July  I,  1918,  the  following  two  rules  appear: 


"Rule  of  Merit  Rating  Controlling  the  Employe  Hazing  But 
One  Eye,  One  Hand,  Etc. 
"Should  any  employe  having  but  one  hand,  arm,  eye,  foot 
or  leg,  thereafter  lose  any  one  of  the  foregoing  members  in  an 
industrial  accident,  the  same  shall  be  merit-rated,  not  as  a  per- 
manent total  disability,  but  as  a  permanent  partial  disability, 
based  upon  the  loss  of  the  last  member  only,  The  remaining 
cost  shall  be  charged  against  the  statutory  surplus   fund." 

RULE  XIII. 

"A  Catastrophe  Accident  Defined. 
"A  catastrophe  accident  is  hereby  defined  as  follows : 

Rate  Zone.  A  Catastrophe  Equals 

from  $0.01  to  $2.00.. two  or  more  deaths* 
from  2.01  to  4.00.. three  or  more  deaths* 
from  4.01  to  6.00.. four  or  jnore  deaths* 
irom     o.oi  and  over.. five  or  more  deaths* 


*  Occurring  in  any  single  accident. 


ON   ADMINISTRATIVE   REORGANIZATION  279 

"Any  permanent  total  disability  accident  involving  an  ex- 
pectancy cost  of  $i2,ooo,t  or  more,  is  hereby  defined  as  a  catas- 
trophe." 

Attention  is  invited  to  the  fact  that  these  rules  pertain  only  to  the 
merit  rating  system  and  do  not  attempt  to  regulate  the  disbursements  of 
the  commission.  Even  though  it  had  been  attempted  to  provide  for  the 
use  of  the  statutory  surplus  fund  in  the  manner  above  indicated  I  am  of. 
the  opinion  that  such  rule  would  not  supersede  the  clear  statutory  require- 
ment that  certain  amounts  shall  be  set  aside  to  guarantee  the  solvency 
of  the  fnud.  It  is  manifest  that  the  logical  purpose  of'  the  Legislature 
would  be  frustrated  and  completely  nullified  if  the  commission  should 
pay  current  losses  out  of  the  statutory  surplus  fund. 

The  application  of  the  rule  yields  ridiculous  results,  as  will  be  noted 
from  the  fact  that  claims  41581  and  41582  have  not  been  charged  to 
current  losses,  but  have  been  charged  to  the  statutory  surplus  fund, 
merely  because  two  deaths  resulted  from  one  accident  but  the  total  amount 
paid  on  the  two  cases  was  $298  because  neither  of  the  deceased  workmen 
had  any  dependents.  It  will  be  seen,  therefore,  that  the  payment  of  $298 
has  been  considered  as  a  "catastrophe"  and  the  statutory  surplus  reduced 
by  that  amount. 

It  will  be  noted  that  in  the  balance  sheet  the  balance  in  state  and 
counties  fund  amounting  to  $335,937  is  carried  as  a  liability.  In  Dr. 
Downey's  report  the  only  liability  for  this  fund  other  than  claim  reserves 

is  $145425- 

It  is  my  understanding  that  the  state,  county  iand  municipal  units 
have  paid  1%  of  their  pay-roll  into  the  fund;  payments  for  injuries 
have  been  paid  from  that  fund  upon  the  awards  of  the  industrial  com- 
mission and  when  the  fund  of  any  county  has  been  exhausted  another 
contribution  of  1%  has  been  paid  in.  As  far  as  the  state  insurance 
fund  is  concerned  this  is  not  insurance,  but  the  fund  is  merely  acting  as 
a  distributing  agency.  The  contributions  ar^  not  in  the  nature  of  insur- 
ance premiums,  but  have  been  1%  for  all  classes  of  risks  whether  clerical 
or  of  the  most  hazardous  kind  (the  law  has  now  been  changed  so  that 
teachers  contribute  a  smaller  amount)  and  in  my  opinion  whatever  bal- 
ance remains  in  the  fund  must  be  held  for  the  payment  of  losses  of  the 
contributing  units  and  cannot  be  used  for  any  other  purpose.  In  the 
circumstances  it  is  incorrect  in  my  opinion  to  consider  that  any  part  of 
the  fund  belongs  to  the  general  surplus.  I  have  therefore  charged  the 
entire  balance  as  a  liability,  made  up  as  follows : 

State  and  counties  premiums  received $896 ,  961 

State  and  counties  premiums  uncollected 226,902 

Interest  allotted   32,825 

$1,156,688 

t  Based  upon  the  Danish  Survivorship  Annuitants'  Table  of  Mortality." 


280  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

Claims  paid   $513 ,  227 

Claims  unpaid    307,524         820,751 

Balance   in    fund $335,937 

I  am  of  the  opinion,  therefore,  that  at  the  close  of  business  February 
28,  1919,  the  statutory  surplus  fund  amounted  to  $2,783,965  and  that  the 
amount  of  surplus  available  for  contingencies  and  for  disiribution 
amounted  to  $1,143,683.  In  the  general  surplus  I  have  included  all  of 
the  interest  earnings  amounting  to  $1,262,529  plus  an  estimate  of 
$100,000  for  accrued  interest  on  bonds  and  less  $110,523  accrued  interest 
on  bonds  purchased. 

The  foregoing  is  important  in  view  of  the  decision  of  the  commis- 
sion to  declare  a  10%  dividend  on  the  past  year's  business  which  the 
actuary  states  will  amount  to  a  dividend  of  approximately  $1,000,000. 
The  use  of  $1,000,000  for  the  purpose  stated  will  reduce  the  general  sur- 
plus fund  to  a  very  small  figure,  without  taking  into  account  the  expe- 
rience of  the  fund  between  March  ist  and  the  present  date,  it  being 
impossible  to  learn  the  experience  for  that  period,  the  records  being  in 
such  shape  as  to  require  many  weeks  for  that  purpose. 

Dr.  Downey  has  pointed  out  that  the  premium  rates  were  somewhat 
deficient  from  May  15,  1914,  to  May  15,  1916,  and  were  barely  adequate 
for  the  year  ended  May  15,  1917,  and  states  that  most  of  the  present 
surplus  of  the  fund  has  accrued  since  the  spring  of  1917.  From  191 7  to 
the  present  time  we  have  been  passing  through  an  era  of  abnormal  indus- 
trial expansion.  This  has  affected  the  surplus  of  the  Ohio  state  insur- 
ance fund  in  several  ways. 

In  the  first  place  wages  have  increased  abnormally  and  up  to  the  time 
of  the  report  of  the  Actuarial-Audit  (February  28,  1919)  there  had  been 
no  increase  in  the  scale  of  compensation.  If  before  the  war  a  workman 
who  was  receiving  $20  per  week  had  been  totally  disabled,  his  compensa- 
tion benefits  would  be  $12  per  week ;  if  during  the  war  the  same  workman 
received  $30  per  week  and  was  injured  his  compensation  would  be  ex- 
actly the  same  —  $12  per  week.  In  other  words  although  the  premium 
paid  by  the  employer  would  be  increased  by  50%,  the  benefits  paid  would 
remain  the  same.    Dr.  Downey  estimates  that  the 

"combined  effect  of  low  maximum  compensation  and  abnor- 
mally high  wages  have  pulled  down  the  rate  of  compensation 
costs  to  pay-rolls  by  as  much  as  20  to  25%." 

I  am  of  the  opinion  that  the  percentage  is  considerably  larger. 

Another  effect  of  the  abnormal  industrial  situation  was  that  so  great 
was  the  demand  for  labor  of  all  kinds  that  even  those  whose  earning 
powers  were  impaired  as  a  result  of  injury  or  age  became  enabled 
to  earn   substantial  wages  and  the  number  of  cases   which   ceased  to 


ON   ADMINISTRATIVE   REORGANIZATION  281 

claim  compensation  benefits  as  a  result  of  partial  disability  was  con- 
siderable. 

The  true  significance  of  the  facts  set  forth  in  the  two  preceding 
paragraphs  is  that  when  we  return  to  a  normal  industrial  condition 
tihe  premiums  received  from  employers  will  be  materially  reduced  and 
the  compensation  benefits  payable  will  be  considerably  increased. 

While  these  facts  would  permit  of  considerable  elaboration,  ref- 
erence to  them  is  made  merely  to  point  out  the  inadvisability  of  dis- 
tributing too  much  of  surplus,  most  of  which  has  been  accrued  as  a 
result  of  abnormal  industrial  conditions  which  it  is  believed  must 
soon  cease,  if  the  change  has  not  already  taken  place. 

Has  the  classification   of  risks  been  properly   madef 

The  classification  of  risks  is  a  difficult  matter  and  one  which  is 
largely  dependent  upon  the  classifier's  underwriting  viewpoint;  it  is 
largely  a  matter  of  personal  opinion  and  the  only  way  to  find  out 
whether  there  has  been  an  equitable  classification  and  a  proper  cal- 
culation of  the  rates  is  to  see  whether  the  various  classes  have  paid  a 
proper  amount  to  meet  the  losses  incurred  within  those  classes.  In 
all  fairness  to  the  actuary  of  the  Ohio  state  fund,  however,  it  should 
be  pointed  out  that  the  workmen's  compensation  laws  in  this  country 
have  not  been  in  operation  for  a  sufficient  number  of  years  to  permit 
of  classification  and  rate  making  with  that  scientific  accuracy  which 
is  to  be  expected  in  the  making  of  rates  for  other  insurance  contin- 
gencies —  life  insurance  for  example.  I  am  not  prepared  to  say  that 
anybody  could  have  guessed  (for  after  all  the  developments  in  the 
administration  of  compensation  laws  and  the  varying  industrial  con- 
ditions during  the  past  three  years  has  introduced  many  varying 
elements)  more  accurately. 

Have  the  rates  been  properly  fixed  according  to  classes? 

Theoretically  the  risks  in  each  class  should  pay  a  sufficient  amount 
to  meet  its  losses.  The  Ohio  state  insurance  fund  is  very  properly 
considered  as  a  unit  and  all  of  the  contributions  of  subscribers  can  be 
used  for  the  payment  of  the  losses,  irrespective  of  the  class  in  which 
they  may  have  occurred.  In  a  large  .organization,  such  as  your  fund  is, 
with  a  large  exposure,  it  is  not  unreasonable  to  expect  that  the  rates 
shall  be  so  adjusted  as  to  cause  each  class  to  be  self-supporting.  In 
order  that  we  may  determine  whether  each  class  is  self-supporting  I 
have  prepared  the  following  table  from  the  distribution  sheets  used  by 
the  actuary  in  his  latest  rate  revision.  The  figures  cover  the  period 
from  the  beginning  of  the  fund  to  March  i,  1919;  the  premiums  earned 
by  each  class  have  been  increased  by  its  proportional  share  of  the  in- 
terest receipts  and  decreased  by  the  amount  required  for  the  statutory 


282 


REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 


surplus;  the  total  payments  to  claimants  have  been  decreased  by  the 
amounts  which  have  been  charged  to  the  statutory  surplus  fund.  As 
pointed  out  in  the  preceding  pages  I  am  of  the  opinion  that  the  charging 
of  these  losses  to  the  statutory  surplus  account  was  unjustifiable. 

The  actuary's  sheets  show  that  during  the  period  mentioned  the 
total  earned  premium  of  the  fund  amounted  to  $31,777,051,  that  some 
of  the  classes  yielded  a  profit  of  $2,750,476,  while  others  showed  a  loss 
of  $385,942,  the  net  surplus  from  all  classes,  therefore,  being  $2,364,534. 
In  column  (4)  of  the  following  table  is  shown  the  amount  of  surplus 
which  each  class  would  have  earned  if  the  rates  had  been  absolutely 
equitable,  while  in  column  (5)  and  (6)  are  shown  the  actual  surplus  or 
deficiencies  according  to  the  Actuary's  calculations. 

/ 
(1)  (2) 

Class  Schedule 


1  Bakers,   confectioners,    etc. 

2  Chemical,   paint  and  drug. 

3  Coach,  carriage  and  wagon 

4  Coal   mining    

5-a     Contractors    

5-b     Contractors    

5-c     Contractors    

6  Electric    

7  Leather  and   shoe 

8  Lumber    

9  Meat     packing     and     stock 

yards    

10-a    Metal    

10-b     Metal    

10-c    Metal    . .' 

11  Mining    

12  Mining    (except  coal) 

13-a     Miscellaneous    

13-b     Miscellaneous    

13-c    Miscellaneous    

13-d    Miscellaneous    

13-e    Miscellaneous    

13-f    Miscellaneous    

14  Oil,   etc 

15  Ore  reduction  and  concen- 

tration     

16-a     Paper    

IG-b     Paper    

17-a     Pottery  and  glass 

17-b     Pottery  and  glass 

18         Printing 


(3) 

(4) 

(5) 

(6) 

Earned     Surplus  zvhich 

Actual 

Actual 

Premiums 

zvould  have 

Surplus    Deficiency 

bi 

■;en  earned  if 

rates  had  been 

I 

equitably  ap- 

portioned 

$280,685 

$20,808 

$83,806 

144,837 

10,877- 

8,357 

555,666 

41,379 

64,092 

4,067,822 

302,660 

530,428 

1,102,829 

82,049 

83,002 

2,026,006 

150,857 

307,532 

1,656,009 

123,192 

6,484 

392,192 

29,084 

51,703 

194,975 

14,424 

17,108 

794,734 

59,113 

36,133 

220,828 

16,552 

11,992 

361,889 

26,956 

97,694 

3,611,545 

268,848 

218,751 

6,794,081 

505,537 

471,447 

154.774 

11,586 

14,432 

89,622 

6,621 

16.565 



465,482 

34,759 



70,005 

515.380 

38,305 

29,941 

■428,288 

31,921 

15,770 

57,930 

4,256 

13,578 

378,701 

28,138 

13,045 

251,079 

18,680 

47,929 

349,375 

26,010 

1,085 

832,615 

61.951 

236.382 

51,618 

3.783 

3.627 

479,385 

35,704 

11,073 

250.879 

18,680 

38,450 

662.061 

49,182 

23,143 

240.326 

17,970 

1,591 

ON   ADMINISTRATIVE   REORGANIZATION  283 


(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

Class                Schedule 

Earned     Surplus  which 

Actual 

Actual 

Premiums 

would  have 

Surplus    Deficiency 

been  earned  if 

rates  had  been 

equitably  ap- 

* 

portioned 

19 

Rubber      and      composition 

905,329 

67,389 

123,822 
28  609 

20 

Stevedore     

153,910 
159,739 

11  350 

21-a 

Stone   

11,823 

4,755 

21-b 

Stone 

399,445 

29,557 

48,953 

22 

Textile 

254,112 

18,016 

34,669 

23 

Tobacco    

36,091 

2,602 

5,100 

24 

Vessel    

43.219 

3,310 

19,064 

25-a 

Warehouse  and    store 

1,296,367 

96,473 

236,808 

25-b 

Warehouse   and    store 

543,157 

40,434 

62,118 

26 

Wood    

574,039 

42,798 

47,375 

Total    

Net    profits    

$31,777,051 

$2,364,534 

$2,750,476 

$385,942 

.      385,942 

$2, 364-,  534 

From  the  above  it  will  be  seen  that  class  i,  for  example,  would 
have  contributed  $20,808  to  the  surplus  of  the  fund  under  an  equitable 
system  of  rate  making,  but  instead  of  earning  any  surplus  the  class 
showed  a  deficit  of  $83,806;  class  4  should  have  shown  a  surplus  of 
$302,660,  while  in  reality  it  yielded  a  surplus  of  $530,428.  Class  5-a, 
contractors,  should  have,  shown  a  surplus  of  $82,049,  while  in  reality  its 
actual  surplus  earned  was  $83,002,  thus  showing  an  equitable  charging 
of  rates. 

It  is  believed  that  part  of  the  inequality  shown  in  the  table  above 
may  be  traced  to  the  use  of  the  payroll  as  a  basis  for  charging,  for  as 
pointed  out  in  the  previous  pages  of  this  report  an  increase  in  wages 
which  does  not  carry  with  it  a  corresponding  increase  in  the  benefits 
is  a  disturbing  factor. 

Docs  the  system  of  merit  rating  encourage  accident  prevention? 

The  system  of  merit  rating  in  use  in  your  fund  is  criticised  by  Dr. 
Downey  and  I  find  myself  in  agreement  in  such  criticism.  Merit  rating 
should  serve  two  purposes  —  first,  to  base  the  employer's  rates  upon 
the  condition  and  experience  of  his  plant,  and  second,  to  encourage  the 
installation  of  safety  devices  in  order  that  the  employees  may  not  be 
exposed  to  undue  hazard.     I  consider  the  second  the  more  important. 

In  the  Ohio  plan  no  account  is  taken  of  the  physical  condition  of 
the  employer's  plant.  The  initial  rate  is  the  same  whether  the  plant  is 
equipped  with  every  known  safety  device  for  the  benefit  of  the  work- 


284  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

men  or  whether  it  is  a  death  trap  of  unguarded  machinery,  improperly 
lighted  rooms  and  every  unfavorable  condition  to  the  health  and  safety 
of  the  workmen.  Subsequent  rates  are  adjusted  on  the  actual  accident 
experience  of  each  employer,  but  no  matter  how  bad  the  experience  has 
been  the  premium  cannot  be  increased  by  more  than  30%.  One  of  the 
most  valuable  adjuncts  to  workmen's  compensation  acts  has  been  the 
system  of  merit  rating  which  encourages  the  employer  to  install  safety 
devices  to  prevent  accidental  injuries ;  this  is  in  marked  contrast  to  the 
method  used  in  your  fund  which  waits  until  the  accident  has  occurred 
before  penalizing  the  employer,  which  frequently  results  in  unjustly 
penalizing  the  careful  employer  for  accidents  which  originate  from 
causes  not  due  to  the  condition  of  the  plant. 

The  accident  laboratory  started  by  your  actuary  to  analyze  the 
causes  of  accidents  with  the  idea  of  preventing  them  in  the  future  is  an 
excellent  one,  which  might  well  be  copied  in  every  state.  At  the  present 
time,  however,  practically  no  use  is  made  of  these  reports  and  your 
attention  is  invited  to  the  great  good  which  could  result  if  the  factory 
inspection  department  of  the  industrial  commission  used  them  more 
extensively.  I  have  been  advised  that  bui  few  of  these  reports  have 
been  received  in  the  inspection  department. 

Are  injured  workmen  receiving  fJieir  compensation  benefits  promptly f 
The  true  test  of  the  success  or  failure  of  a  workmen's  compensation 
act  is  the  promptness  with  which  injured  employees  and  their  dependents 
receive  the  benefits  provided  in  the  law.  Rates  may  be  equitably  charged, 
investments  may  consist  of  prime  securities,  records  may  be  in  first 
class  shape  and  the  statistics  may  be  properly  compiled,  but  unless  the 
injured  workmen  receive  their  benefits  promptly  the  plan  is  a  failure. 

In  the  report  made  for  your  fund  by  Dr.  Downey  he  criticises  very 
severely  the  delay  in  paying  claims.  When  it  was  announced  in  the 
Ohio  newspapers  that  I  had  been  retained  by  your  committee  to  make 
this  investigation  the  statement  was  made  to  me  that  no  opportunity 
had  ever  been  given  to  hear  complaints  from  those  who  thought  the 
fund  was  not  functioning  properly  and  in  order  to  give  everj'body  an 
opportunity  to  be  heard  I  told  my  informant  that  I  would  receive  visits 
or  communications  from  anyone  who  was  able  to  shed  any  light  on  this 
important  phase  of  the  question ;  as  a  result  of  these  interviews  I  ad- 
dressed the  following  communication  to  your  chairman: 

"Columbus,  Ohio,  Dec.  8,  1919. 
"Hon.  F.  E.  Whittemore.  Chairman, 

The  Joint  Legislative  Committee  on  Administrative  Reor- 
ganization, Cohunhus,  Ohio. 
"My  Dear  Senator  —  Asa  result  of  the  statement  in  the 
newspapers  of  my  pending  investigation    for  your  committee 


ON   ADMINISTRATIVE   REORGANIZATION  285 

of  the  state  insurance  fund,  I  was  visited  on  Saturday  by  an 
agent  of  one  of  the  insurance  companies,  who  stated  that  if 
the  investigation  were  to  be  a  thoro  one  he  would  Hke  to  pre- 
sent certain  facts  in  regard  to  the  operations  of  the  fund.  I 
told  him  that  I  would  be  very  glad  to  receive  any  facts  from 
anybody  in  regard  to  any  of  the  phases  of  the  fund. 

"It  seems  to  me  advisable  and  I  would .  respectfully  recom- 
"mend  to  you  that  a  public  hearing  be  held,  at  which  employers 
who  have  any  grievances  against  the  administration  of  the  fund, 
may  be  heard,  and  it  seems  to  me  that  publicity  ought  to  be 
given  to  this  hearing  in  order  that  those  employers  and  em- 
ployees, who  have  had  favorable  experience  with  the  fund, 
should  also  be  heard. 

"Very  respectfully,    " 
(Signed)  S.  H.  Wolfe/' 

The  hearings  were  held,  but  no  employer  appeared  to  express  any 
dissatisfaction  with  the  way  in  which  the  fund  had  operated. 

In  order  to  carry  out  the  idea  which  your  chairman  impressed 
upon  me  at  the  outset,  viz. :  particular  attention  should  be  paid  to  make 
the  suggestions  which  would  have  for  the  object  the  prompt  payment 
of  claims,  an  investigation,  by  assistants  selected  by  your  secretary,  of 
the  awards  made  by  the  commission  on  November  24th,  25th,  26th,  28th, 
and  December  ist,  19 19,  was  started  under  my  direction,  with  two 
objects  in  view: 

(a)  To  determine  whether  the  time  elapsing  between  the  date 
of  accident  and  the  date  of  award  was  justifiable; 

(b)  Whether  the  time  elapsing  between  the  filing  of  the  pre- 
liminary application  and  the  date  of  award  was  justifiable. 

The  inquiry  was  divided  in  this  way  for  if  tabulation  (a)  indicated 
unusual  delay,  the  results  of  tabulation  (b)  would  enable  us  to  deter- 
mine whether  the  fault  was  due  to  the  difficulty  experienced  by  the 
claimant  in  having  his  proof  papers  properly  prepared  or  whether  the 
delay  could  be  traced  to  a  failure  in  the  office  of  the  commission  to 
promptly  act  upon  the  completed  papers  when  they  had  been  received. 

The  result  of  the  tabulation  verified  the  conclusions  of  Dr.  Downey, 
viz :  that  the  procedure  was  cumbersome  and  that  the  method  of  estab- 
lishing a  claim  was  too  complicated  to  permit  of  an  award  being  made 
within  a  reasonable  time. 

The  results  of  tabulation  (b)  showed  that  too  many  days  elapsed 
between  the  date  when  the  preliminary  application  was  received  by  the 
commission  and  the  date  when  the  award  was  made  to  the  claimant. 
Several  cases  were  discussed  with  the  industrial  commission  in  the  pres- 


286  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

ence  of  a  sub-committee  appointed  by  your  chairman  and  no  adequate 
reason  appeared  for  the  delays. 

The  removal  of  the  delay  requires  two  remedies  —  first,  the  simpli- 
fication of  the  procedure  whereby  an  award  will  be  made  to  the  claimant, 
and  second,  a  reduction  in  the  number  of  days  which  elapse  between 
the  receipt  of  the  completed  papers  and  the  action  by  the  commission. 
A  study  of  the  operations  of  the  office  must  be  made  to  determine  just 
what  changes  in  procedure  are  necessary;  it  is  but  just  to  the  members  of 
the  commission,  however,  to  say  that  they  complained  of  the  inability  to 
obtain  and  keep  competent  office  assistants  owing  to  the  low  wages  which 
they  are  authorized  to  pay.  In  the  interests  of  the  injured  workmen  of 
your  state  it  is  necessary  that  a  sufficient  number  of  properly  paid  em- 
ployees should  be  furnished  to  the  state  industrial  commission  to  carry 
on  its  work.  Whether  the  operation  study  previously  advised  will  suggest 
changes  in  office  management  which  will  enable  the  work  to  be  advantage- 
ously handled  by  the  present  force  is  a  matter  which  cannot  be  determined 
at  this  time. 

From  the  facts  developed  by  my  investigation  I  am  of  the  opinion 
that  the  interests  of  the  injured  workmen  of  your  state  require  that  cer- 
tain changes  be  made  and  in  order  that  you  may  have  them  before  you 
concretely  I  submit  the  following  recommendations : 

RECOMMENDATIONS. 

I .     To  install  a  proper  system  of  records  and  accounts. 

The  Ohio  state  fund  is  a  very  large  insurance  organization  which 
differs  in  no  way  from  a  private  corporation,  except  that  it  employs  no 
soliciting  force,  its  subscribers  pay  their  premiums  direct  to  the  state 
treasurer  and  it  is  not  conducted  for  private  gain.  An  organization 
transacting  the  volume  of  business  which  your  fund  does  should  have 
an  adequate  system  of  accounts  which  would  permit  of  prompt  and  care- 
ful audit;  the  intimate  connection  between  the  operations  of  the  fund 
and  the  necessities  of  the  great  body  of  injured  workmen  and  their 
dependents  is  an  additional  reason  for  the  keeping  of  its  records  in  the 
most  careful  and  accurate  way. 

About  three  years  ago  Mr.  John  A.  Bliss,  an  assistant  in  the  office 
of  the  auditor  of  state  of  Ohio,  made  a  very  excellent  report  on  the 
system  in  the  office  of  the  state  industrial  commission.  In  that  report, 
which  was  submitted  to  the  auditor  in  1916,  he  criticises  very  harshly 
the  failure  to  maintain  proper  records  in  the  state  insurance  fund  and 
in  explaining  the  reason  for  some  of  his  recommendations  he  states: 

"Our  reason  for  this  recommendation  is  that,  under  the 
present  system,  there  is  no  adequate  check  in  receipts  and  as  a 
result  of  such  conditions  these  funds  might  be  misappropriated, 
with  but  remote  chance  of  detection." 


ON   ADMINISTRATIVE   REORGANIZATION  287 

I  have  been  informed  that  at  the  time  Mr.  Bliss  made  his  report  the 
premiums  were  paid  by  the  subscribers  to  the  fund,  but  this  system  has 
been  changed  and  payments  are  made  direct  to  the  state  treasurer;  this 
would  remove  much  of  the  danger  in  reference  to  receipts,  but  the 
necessity  for  a  better  system  of  records  and  accounts  still  exists. 

I  have  been  informed  that  at  the  present  time  the  auditor  of  the 

state  has  no  authority  to,  examine  the  fund  and  that  no  other  state  officer 

has  any  power  of  visitation  or  supervision.     It  would  appear  to  me  that 

'  in  the  interests  of  efficient  management  some  form  of  state  supervision 

should  be  established.    This  is  being  done  in  other  states. 

2.     The  statutory  surplus  fund  should  be  restored. 

As  pointed  out  in  the  text  of  this  report  the  statutory  surplus  fund 
on  March  ist  should  have  been  $2,783,965,  instead  of  $1,052,700  as  shown 
by  the  sheets  in  the  actuarial  department.  It  is  imperative  in  my  opinion 
that  the  integrity  of  the  fund  should  be  preserved  in  order  that  in  the 
event  of  a  catastrophe  the  solvency  of  the  fund  may  be  assured  and  the 
future  payments  to  injured  workmen  and  their  dependents  guaranteed. 
The  effect  of  the  present  method  of  charging  current  losses  to  the  statu- 
tory surplus  fund  is  in  violation  of  law,  is  fraught  with  the  greatest 
danger  and  should  be  immediately  corrected.  By  charging  current  losses 
to  this  fund  the  general  surplus  from  which  dividends  are  paid  to  the 
employers  has  been  made  to  appear  much  larger  than  it  is  in  reality. 
The  primary  function  of  a  state  insurance  fund  is  to  pay  claims  to 
injured  workmen  and  not  to  pay  dividends  to  employers.  This  is  funda- 
mental and  is  not  an  actuarial  question. 

The  necessity  for  having  a  large  statutory  surplus  fund  is  evident 
for  the  state  insurance  fund  has  no  capital  stock,  has  not  the  power  of 
levying  assessments  and  is  not  supported  by  any  state  guarantee  of 
solvency.  In  addition  it  must  be  remembered  that  the  fund  is  insuring 
the  most  hazardous  of  employments,  risks  which  are  subject  to  the  catas- 
trophe hazard ;  in  the  case  of  private  insurers  this  hazard  is  covered  by 
reinsurance,  a  form  of  relief  which  is  not  open  to  your  fund,  and  the 
necessity  for  a  large  statutory  surplus  fund  is  therefore  indicated. 

3.  The  delay  in  paying  injured  claimants  and  their  dependents 
should  be  reduced. 

Too  great  a  time  elapses  between  the  date  of  injury  and  the  date 
when  the  claimant  receives  his  payment.  Up  to  this  time  separate  blanks 
have  been  filled  out  by  the  injured  workman,  his  employer  and  the  doctor; 
it  is  now  proposed  to  have  the  three  notices  in  one  blank.  I  seriously 
question  whether  this  change  will  accomplish  the  purpose,  and  I  think 
the  remedy  must  go  deeper  than  the  change  in  the  method  of  filling  out 
blanks.  This  may  require  the  establishment  of  branch  offices  containing 
inspectors  or  supervisors  who  will  perform  the  same  work  which  agents 


288  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

of  private  companies  do  in  other  localities,  viz. :  assist  in  getting  the 
papers  in  such  shape  as  to  permit  of  immediate  payment.  This  is  one 
of  the  first  subjects  with  which  the  study  referred  to  in  the  next  recom- 
mendation should  concern  itself,  for  the  test  of  the  success  of  a  work- 
men's compensation  act  is  the  speed  with  which  payments  are  made  to 
injured  claimants  and  their  dependents. 

4.  An  operation  study  should  be  made. 

A  thorough  study  of  the  office  of  the  state  insurance  fund  should 
be  made  for  the  purpose  of 

(a)  Reducing  the  delay  referred  to  in  the  preceding  recom- 
mendation, 

(b)  Devising  a  method  for  using  the  other  departments  of  the 
state  industrial  commission  to  reduce  the  number  of  acci- 
dents and  to  encourage  the  use  of  safety  devices. 

(c)  To  determine  whether  there  is  any  duplication  of  work  in 
the  office,  whether  any  unnecessary  records  are  being  kept 
and  whether  greater  efficiency  could  result  if  the  scale  of 
compensation  to  employees  was  changed. 

5.  A  change  should  be  made  in  the  system  of  merit  rating. 

A  modification  in  the  present  plan  should  be  introduced  in  order  to 
give  due  weight  to  the  physical  condition  of  the  plant.  This  would  serve 
to  reduce  the  number  and  severity  of  accidents  more  effectively  than  the 
present  plan.  If  the  installation  of  such  a  system  requires  a  force  of 
inspectors  and  merit  raters,  their  employment  should  be  authorized  and 
the  necessary  appropriation  made. 

6.  A  state  insurance  fund  manager  should  be  appointed. 

At  the  present  time  there  is  no  officer  charged  solely  with  the  duty 
of  managing  the  state  insurance  fund.  The  members  of  the  state  indus- 
trial commission  administer  the  free  employment  offices,  exercise  super- 
vision over  the  censorship  of  the  movies,  the  inspection  of  steam  boilers, 
the  licensing  of  engineers,  supervise  the  workmen's  compensation  act  and 
the  enforcement  of  numerous  laws  relating  to  the  employment  of  women 
and  children  in  factories  and  workshops,  together  with  other  duties  In 
the  circumstances  it  is  not  surprising  that  there  has  been  a  failure  to 
co-ordinate  all  of  the  departments  of  the  state  insurance  fund  and  to 
secure  the  most  efficient  results.  In  my  opinion  this  can  be  accomplished 
by  the  appointment  of  a  manager  for  the  state  insurance  fund  who 
would  devote  his  attention  solely  to  that  organization,  who  would  be 
charged  with  the  duty  of  securing  efficient  results  and  who  would  be 
clothed  with  the  necessary  authority  to  accomplish  that  purpose. 


ON   ADMINISTRATIVE   REORGANIZATION  289 

In  the  foregoing  recommendations  I  have  not  referred  to  the  method 
of  charging  for  compensation  benefits  to  state  and  county  employees,  for 
it  would  require  an  amendment  to  the  law  to  make  the  change  which  I 
think  necessary  in  the  interests  of  justice.  It  is  manifestly  improper  to 
charge  the  same  rate  of  premium  for  clerical  assistants  and  for  those 
engaged  in  more  hazardous  employment,  such  as  highway  work,  electric 
light  linemen,  etc.  If  a  county  is  to  insure  its  employees  for  compensa- 
tion benefits  I  can  see  no  reason  why  it  should  not  pay  the  same  rates  as 
other  employers  do,  rates  based  upon  the  hazard  of  the  occupation.  This, 
however,  is  merely  called  to  your  attention  for  such  use  as  you  may  see 
fit. 


19 


SHALL  THE  STATE  INSURANCE  FUND  PAY  THE  COST 
OF  IIS  ADMINISTRATION? 

By  C.  B.  GALBREATH 


When  the  state  is  called  upon  to  conduct  business  in  behalf  of  any 
enterprise,  not  educational  or  benevolent  in  character,  the  interest  con- 
cerned is  usually  expected  to  pay  the  cost  of  administration.  Thus  it  is 
that  many  of  our  governmental  agencies  are  self-supporting.  This  is 
true  of  most  of  the  inspectional  service  of  the  state.  The  state  fire 
marshal,  the  commissioner  of  insurance,  the  commissioner  of  securities 
and  the  superintendent  of  banks  and  banking  are  examples  of  a  few  of 
the  offices  that  are  self-supporting. 

Is  the  same  true  of  the  administration  of  the  workmen's  compensa- 
tion fund?  If  not,  whence  comes  the  revenue  for  the  conduct  of  this 
department  ? 

Examination  promptly  reveals  the  fact  that  all  the  expenses  of 
administering  this  fund  are  paid  from  the  general  revenue  fund  of  the 
state. 

The  Ohio  law  makes  a   certain  class  of   employes  beneficiaries  of 
the  workmen's  compensation  fund.    This  fund  is  created  and  maintained 
by  premiums  paid  by  those  employing  not  less  than  five  persons.     It  does 
not  apply  to  smaller  groups  of  employes  or  to  those  laboring  on  their  own* 
account. 

If  the  village  blacksmith  sustains  injury  while  "swinging  his  heavy 
sledge"  or  the  farmer  wdiile  following  the  plow,  no  money  or  special  favor 
is  forthcoming  to  him  for  injuries  received.  While  he  gets  no  insurance 
he  makes  contribution  to  the  treasury  of  the  state  to  pay  for  injuries 
sustained  by  others. 

Manufacturers  and  other  employers  of  labor  pay  in  premiums  a  sum 
sufficient  to  meet  all  losses  of  employes  and  their  dependents  from  injury, 
disability  or  death  but  they  do  not  pay  all  the  costs  of  operating  the  work- 
men's compensation  department.  That  expense  at  present  is  paid  by  the 
taxpayers  of  the  entire  state. 

That  the  state  should  pay  the  o])erating  expenses  of  the  workmen's 
compensation  law  at  the  outset  until  supporting  revenues  were  provided 
and  a  working  system  finally  establisherl  is  readily  recognized.  Such  has 
been  the  policy  of  other  states.  But  when  premiums  are  ample  to  pay 
all  awards,  to  provide  the  required  reserve  and  a  surplus  sufficient  to 
more  than  pay  expenses  of  operation,  there  appears  to  be  ground  for 
the  claim  that  the  premiums  should  pay  such  expenses.     The  citizens 

290 


ON    ADMINISTRATIVE   REORGANIZATION  29I 

who  insure  their  hves  or  property  in  private  companies  pay  in  premiums 
sufficient  to  meet  all  expenses  including  administrative  charges.  Recently 
the  industrial  commission  of  Ohio  announced  a  surplus  of  over  one 
million  dollars  above  all  necessary  legal  reserve,  which  is  reported  to  have 
been  distributed  to  those  who  paid  the  premiums  —  the  concerns  employ- 
ing labor  in  the  state  —  while  the  taxpayers  continue  to  pay  charges  of 
administration  amounting  to  about  $300,000  annually. 

Pennsylvania  and  New  York  passed  workmen's  compensation  laws 
and  paid  expenses  of  operation  for  a  time,  but  soon  enacted  amendments 
to  make  their  compensation  funds  self-supporting. 

The  provision  of  the  Pennsylvania  law  on  this  subject  reads  as  fol- 
lows : 

"The  money  paid  in  premiums  by  subscribers  is  hereby  made  avail- 
able for  the  expenses  of  administering  the  fund.  The  board  shall  keep 
an  accurate  account  of  the  money  paid  in  premiums  by  the  subscribers 
and  the  disbursements  on  account  of  injuries  to  the  employes  thereof,  and 
on  account  of  administering  the  fund ;  and  if,  at  the  expiration  of  any 
year,  there  shall  be  a  balance  remaining  after  deducting  such  disburse- 
ments, the  unearned  premiums  on  undetermined  risks  and  the  percentage 
of  premiums  paid  or  payable  to  create  or  maintain  the  surplus  provided 
in  section  nine  of  this  act,  and  after  setting  aside  an  adequate  reserve,  so 
much  of  the  balance  as  the  Board  may  determine  to  be  safely  distributable 
shall  be  distributed  among  the. subscribers  in  proportion  to  the  premiums 
paid  by  them ;  and  the  proportionate  share  of  such  subscribers  as  shall  re- 
main subscribers  to  the  fund  shall  be  credited  to  the  installment  of  premi- 
ums next  due  by  them,  and  the  proportionate  share  of  such  subscribers 
as  shall  have  ceased  to  be  subscribers  in  the  fund  shall  be  refunded  to 
them  out  of  the  fund  in  the  manner  hereinafter  provided."  Chapter  395, 
Sec.  II. 

The  provision  of  the  New  York  law,  which  is  similar  in  effect,  is  em- 
braced in  Senate  Bill  No.  220,  which  was  introduced  by  Senator  Whitte- 
more  at  the  adjourned  session  of  the  83rd  General  Assembly.  The  bill 
in  full  is  as  follows : 

"A  BILL 

"To  amend  section  1465-54  and  supplement  section  1465-102 
of  the  General  Code  by  the  enactment  of  section  I465-I02a, 
relative  to  providing  for  the  payment  of  expenses  incurred 
in  administering  the  state  insurance  fund. 

"Be  it  enacted  by  the  General  Assembly  of  the  State  of  Ohio' 

"Sfxtion  I.  That  section  1465-54  be  amended  and  section  1465-102 
be  supplemented  by  the  enactment  of  section  1465- 102a,  all  to  read  as 
follows : 

"Sec.  1465-54.  It  shall  be  the  duty  of  the  industrial  commission  of 
Ohio,  in  tbe  exercise  of  the  powers  and  discretion  conferred  upon  it  in 
the  preceding  section,  ultimately  to  fix  and  maintain,  for  each  class  of 
occupation,  or  industry,  the  lowest  possible  r^tes  of  premium  consistent 
with  the  maintenance  of  a  solvent  state  insurance  fund  and  the  creation 


292  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

and  maintenance  of  a  reasonable  surplus,  after  the  payment  of  legitimate 
claims  for  injury  and  death  that  it  may  authorize  to  be  paid  from  the 
state  insurance  fund  for  the  benefit  of  injured  and  the  d,ependents  of 
killed  employes  and  after  the  reimbursement  of  the  state  treasury  for  the 
expenses  of ' administering  said  fund;  and,  in  order  that  said  object  may 
be  accomplished,  said  commission  shall  observe  the  following  require- 
ments in  classifying  occupations  or  industries  and  fixing  the  rates  of 
premium  for  the  risks  of  the  same: 

"i.  It  shall  keep  an  accurate  account  of  the  money  paid  in  premi- 
ums by  each  of  the  several  classes  of  occupations  or  industries,  and  the 
losses  on  account  of  injuries  and  death  to  employes  thereof,  and  it  shall 
also  keep  an  account  of  the  money  received  from  each  individual  em- 
ployer, and  the  amount  of  losses  incurred  against  the  state  insurance 
fund  on  account  of  injuries  and  death  of  the  employes  of  such  em- 
ployer. . 

"2.  Ten  per  cent,  of  the  money  that  has  heretofore  been  paid  mto 
the  state  insurance  fund  and  ten  per  cent,  of  all  that  may  hereafter  be 
paid  into  such  fund  shall  be  set  aside  for  the  creation  of  a  surplus  until 
such  surplus  shall  amount  to  the  sum  of  one  hundred  thousand  dollars 
($100,000.00)  after  which  time  the  sum  of  five  per  cent,  of  all  the 
money  paid  into  the  state  insurance  fund  shall  be  credited  to  such  surplus 
fund,  until  such  time  as,  in  the  judgment  of  said  commission,  such  sur- 
plus shall  be  sufficiently  large  to  guarantee  a  solvent  state  insurance  fund. 
"3.  On  the  first  day  of  July,  1917,  and  annually  thereafter,  a  re- 
vision of  rates  shall  be  made  in  accordance  with  the  experience  of  said 
commission  in  the  administration  of  the  law  as  shown  by  the  accounts 
kept  as  provided  herein ;  and  said  commission  shall  adopt  rules  governing 
said  rate  revisions,  the  object  of  which  shall  be  to  make  an  equitable 
distribution  of  losses  among  the  several  classes  of  occupation  or  industry, 
which  rules  shall  be  general  in  their  application,  and  provide  for  reim- 
bursing the  state  treasury  for  expenses  of  administering  the  state  in- 
surance fund. 

"Sec.  1465- 102a.  The  state  insurance  fund  shall  be  available  for 
reimbursement  of  the  state  treasury  for  expenses  incurred  in  the  ad- 
ministration of  said  fund.  In  the  month  of  July,  nineteen  hundred  and 
twenty,  and  annually  thereafter  in  such  month,  the  industrial  commission 
of  Ohio  shall  ascertain  the  just  amount  incurred  by  said  commission 
during  the  preceding  fiscal  year,  in  the  administration  of  the  state  insur- 
ance fund,  and  shall  refund  such  amount  to  the  state  treasury.  If  there 
be  employes  of  the  commission  other  than  the  commissioners  themselves 
and  the  secretary  whose  time  is  devoted  to  the  general  work  of  the 
commission  and  partly  to  the  work  of  the  state  insurance  fund,  and  in 
case  there  is  other  expense  which  is  incurred  jointly  on  behalf  of  the 
general  work  of  the  commission  and  the  state  insurance  fund,  an  equitable 
apportionment  of  the  expense  shall  be  made  for  such  purpose  and  the 
part  thereof  which  is  applicable  to  the  state  insurance  fund  shall  be 
chargeable  thereto. 

"Section  2.  That  original  section  1465-54  of  the  General  Code  be, 
and  the  same  is  hereby  repealed." 

The  bill  did  not  reach  a  vote  in  the  senate.  Its  enactment  into  law 
would  have  stopped  a  drain  upon  the  general  revenue  fund  of  the  state 
to  the  extent  of  $300,000  Annually.  The  opportunity  presented  in  this 
bill  is  still  open  to  the  general  assembly  whenever  it  chooses  to  act. 


STATE  FIRE  MARSHAL 

Prepared  Under  Direction  of 

DR.  L.  D.  UrSON 

By  ARCH  MANDEL 


SOURCE  OF  INFORMATION 

Interviews  with  the  Fire  Marshal,  Mr.  T.  Alfred  Fleming,  the 
chief  clerk;  study  of  publications  issued  and  survey  of  the  system  of 
records  kept  in  the  office. 

FUNCTIONS  OF  THE  FIRE  MARSHAL^S  OFFICE 

Under  the  statute,  the  state  fire  marshal  is  charged  with  the  respon- 
sibility of, 

1  —  Investigating  or  enforcing  by  local  officers  the  investigation  of 

all  fires  occurring  within  the  state. 

2  —  Arresting  and  prosecuting  all  persons  suspected  of  arson  or  a 

similar  crime. 

3  —  Inspecting  buildings   and   ordering  corrections   of   all  defects 

rendering  the  structure  dangerous  from  the  standpoint  of  fire, 
or  ordering  demolition  of  structures. 
4 — Inspecting  all  hotels  and  restaurants  as  to  sanitary  conditions 
and  issuing  licenses  if  approved. 

5  —  Inspecting  and  licensing  all  dry  cleaning  establishments. 

6  —  Keeping  a  record  of  all  fires  in  the  state,  origin,  losses  and 

other  statistics  relating  to  the  fire. 

ORGANIZATION 

The  fire  marshal  is  appointed  by  the  governor  for  a  period  of  two 
years.  All  deputies  and  assistants  are  appointed  by  the  fire  marshal  and 
removable  by  him  for  cause. 

Expenses  of  the  fire  marshal's  office  are  met  from  the  fund  paid 
into  the  state  treasury  by  the  fire  insurance  companies,  and  shall  not 
exceed  for  any  year,  the  amount  paid  in  by  the  insurance  companies. 
The  law  requires  all  fire  insurance  companies  to  pay  annually  one-half 
of  one  percent  on  the  gross  amount  of  premiums  received  by  them  from 
policies  covering  risks  within  the  state  during  the  preceding  calendar 
year;  this  to  be  paid  in  addition  to  regular  taxes. 

For  purposes  of  operation  the  state  is  divided  into  districts,  each  in 
charge  of  an  assistant  inspector.  The  water  supply  engineer  and  the 
electrical  inspector  work  in  all  parts  of  the  state,  wherever  needed. 

293 


294  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

ACTIVITIES  OF  THE  FIRE  MARSHAL'S  OFFICE 

All  the  numerous  activities  of  the  fire  marshal  reduce  themselves 
to  three  general  classes  — 

1  —  Investigation   of   origin   of   fires   and   prosecution   of   persons 

suspected  of  arson. 

2  —  Inspection  of  buildings  and  correction  of  defects ;  inspection 

and  licensing  of  hotels  and  restaurants. 

3  —  Educational  propaganda  throughout  the  state  looking  towards 

the  prevention  of  fires. 

Ordinarily,  investigation  of  the  origin  of  fires  is  made  by  local 
officers,  but  in  cases  where  the  origin  is  unknown  and  further  investiga- 
tion seems  necessary,  the  fire  marshal's  stafif  takes  up  the  matter.  The 
last  printed  report — 1918 — shows  that  590  investigations  were  made 
by  the  fire  marshal's  office,  resulting  in  95  convictions. 

In  addition  to  investigating  origin  of  fires,  each  assistant  inspects 
buildings  in  his  district  for  purposes  of  eliminating  all  conditions  render- 
ing a  structure  a  fire  hazard.  This  may  mean  repairs  and  alterations  or 
the  condemnation  of  the  entire  building.  In  1918  the  fire  marshal's  de- 
partment made  11,971  "tear  down  and  repair"  inspections. 

In  those  cities  where  the  inspection  service  by  the  local  department 
is  adequate,  the  assistant  fire  marshal  merely  co-operates  when  he  is 
called  upon  —  to  enforce  orders  issued  by  the  local  authorities' or  to 
assist  in  the  investigation  of  fires. 

At  the  1919  session  of  the  legislature,  the  fire  marshal's  office  was 
saddled  with  the  duty  of  licensing  and  regulating  hotels  and  restaurants 
in  all  their  phases  —  sanitary  conditions,  manner  of  handling  and  prepar- 
ing food,  health  of  employees  and  enforcement  of  laws  against  vice. 
This  regulation  and  licensing  of  hotels  and  restaurants  entails  an  inspec- 
tion of  all  these  establishments  in  Ohio. 

The  greatest  permanent  factor  in  the  reduction  of  fires  is  education 
of  the  public,  and  this  phase  of  the  work  has  been  developed  to  a  high 
degree  by  the  fire  marshal  in  office  at  the  time  the  field  work  of  this 
survey  was  done.  Through  the  press,  through  special  bulletins,  through 
talks  before  women's  clubs,  school  children,  etc.,  by  means  of  fire  pre- 
vention campaigns,  direct  education  of  factory  owners,  the  fire  marshal's 
office  has  carried  on  a  vigorous  campaign  of  education  against  careless- 
ness and  for  watchfulness  against  those  factors  contributing  to  fires. 

It  was  found  that  the  fire  marshal's  department  was  operated  ag- 
gressively and  efficiently  and  that  the  system  of  records  and  reports  fur- 
nished an  efTective  control  of  the  work. 


ON  ADMINISTRATIVE  REORGANIZATION  295 


RECOMMENDATIONS 

1  —  That  the  licensing  and  regulation  of  hotels  and  restaurants 

be  transferred  to  the  state  health  department. 

It  is  obvious  that  the  matter  of  the  proper  handling  01 
food-  sajiitarv  conditions  of  hotels  and  restaurants,  tne  ircc- 
dom  of  food  handlers  from  communicable  diseases  are  func- 
tions belonging  properly  to  that  department  responsible  for 
the  prevention  and  control  of  disease.  Furthermore,  the  in- 
spection necessary  before  Hcenses  are  granted  to  hotels  and 
restaurants  duplicates  the  work  of  the  health  department  in  the 
cities,  and  when  the  work  of  the  county  health  organizations  is 
perfected,  there  will  be  further  duplication  of  inspections  out- 
side of  the  larger  cities. 

2  —  That  the  inspection  of  buildings  throughout  the  state  for 

the  purposes  of  eliminating  fire  hazeurds,  now  being  carried 
on  by  the  assistant  fire  marshals,  be  delegated  to  the  in- 
spectors of  the  division  of  workshops  and  factories  of  the 
industrial  commission. 

The  line  of  demarkation  between  the  responsibilities  of 
the  inspectors  of  the  division  of  workshops  and  factories,  and 
that  of  the  assistant  fire  marshals,  is  rather  fine  and  sometimes 
difficult  to  distinguish.  The  division  of  workshops  and  fac- 
tories seeks  to  eliminate  those  conditions  which  are  dangerous  to 
life  and  limb,  in  case  of  fire  and  other  catastrophes.  The  fire 
marshal's  office  seeks  to  eliminate  those  conditions  which  in 
themselves  make  the  building  a  fire  hazard.  For  instance,  the 
manner  in  which  doors  open  is  a  matter  for  the  division  of 
workshops  and,  factories,  while  the  number  and  kind  of  exits 
is  a  matter  for  the  fire  marshal's  office.  However,  in  their 
inspections,  the  inspectors  of  the  division  of  workshops  and 
factories,  cover  the  whole  building  and  select  for  their  reports 
and  orders,  those  conditions  with  which  they  are  concerned. 
It  would  be  a  comparatively  simple  matter  for  these  inspectors 
to  include,  at  the  same  time,  all  conditions  which  make  the 
structure  dangerous  to  life,  or  make  it  a  fire  hazard.  In  fact 
the  distinction  in  many  instances  is  almost  impossible  to  make. 

For  an  inspector  to  visit  a  building,  inspect  it  thoroughly 
and  to  refrain  from  ordering  corrections  to  obvious  defects, 
because  such  orders  "belong"  to  another  department,  not  only 
results  in  a  waste  of  time  but  may  result  in  a  serious  loss 
because  necessary  corrections  may  wait  until  the  "proper"  de- 
partment becomes  cognizant  of  them.  This  is  the  situation 
under  the  present  organization  of  the  departments.     On  the 


296  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

Other  hand,  it  is  not  inconceivable  to  have  two  recommendations 
made  for  the  correction  of  a  single  defect  —  one  by  the  fire 
marshal's  offke  and  another  by  the  division  of  workshops  and 
factories. 

Another  point  to  be  borne  in  mind  in  connection  with  this 
cumbniaiion  of  functions,  is  that  the  division  of  workshops  and 
factories  is  charged  with  the  enforcement  of  the  existing 
building  code  and  will  also  enforce  the  new  building  code  which 
has  been  tentatively  prepared. 

By  increasing  the  personnel  of  the  division  of  workshops 
and  factories,  a  thing  possible  because  of  the  special  fund 
contributed  by  fire  insurance  companies,  it  is  felt  that  the  safety 
of  persons  working  in  factories  and  mercantile  establishments, 
and  of  school  children  and  others  occupying  public  buildings, 
will  be  greatly  enhanced,  because  of  the  possibility  of  more 
intensive  inspection  and  the  consequent  elimination  of  fire 
hazards.  It  is  desired  to  emphasize  the  point  that  there  is  a 
distinct  duplication  of  work,  without  any  special  benefits  ac- 
cruing from  this  double  inspection. 

3  —  That   for  purposes  of  investigating   fires  and  prosecuting 

persons  suspected  of  arson  and  similar  crimes,  a  staJf  of 
three  or  more  men  delegated  to  this  wrork  solely,  be  em- 
ployed by  the  division  of  workshops  and  factories. 

Under  the  law,  all  fires  are  investigated  by  local  author- 
ities and  only  in  those  instances  where  the  origin  of  the  fire 
is  unknown  or  suspicious,  does  the  fire  marshal's  ofiice  make 
an  investigation.  In  such  cases,  it  is  desirable  that  particularly 
qualified  persons  make  the  investigation  because  of  the  delicacy 
and  intricacy  of  the  work.  The  employment  of  a  special  staff 
for  this  purpose  would,  it  is  believed,  result  in  more  effective 
investigation. 

4  —  That   the   educational   work    in   connection   with   fire   pre- 

vention be  carried  on  by  a  safety  director  of  the  division 
of  workshops  and  factories. 

The  division  of  workshops  and  factories  employs  a  safety 
director  whose  sole  duty  it  is  to  educate  factory  owners  and 
the  people  in  Ohio,  generally,  in  taking  precautions  against 
accidents.  The  education  for  fire  prevention  is  along  the  same 
line  and  can  be  done  efi"ectively  by  the  same  organization. 

5  —  That  the  office  of  fire  marshal,  as  such,  be  abolished. 

It  is  apparent  that  should  the  foregoing  recommendations 
be  carried  out.  all  of  the  functions  of  the  fire  marshal's  office 


ON   ADMINISTRATIVE  REORGANIZATION  297 

will  be  taken  over  by  the  division  of  workshops  and  factories 
and  the  department  of  health. 
Should  recommendation  No.  5  not  be  adopted,  it  is  recommended, 

6  —  That  all  deputies,  inspectors  and  assistant  inspectors  be 
placed  in  classified  service  and  be  employed  on  the  basis 
of  merit  rather  than  upon  the  basis  of  political  afiiliation. 

Considerable  money  is  wasted  by  the  state  government 
because  it  must  train,  practically  every  two  years,  a  new  staff 
in  the  fire  marshal's  office.  It  takes  at  least  six  months  before 
the  men  become  proficient  in  their  inspections  and  investiga- 
tions. Furthermore,  there  is  doubtless  considerable  loss  to 
the  citizens  of  Ohio  generally,  because  of  the  employment  of 
novices  with  the  change  of  every  administration. 


STATE  OIL  INSPECTOR 

Prepared  Under  the  Direction  of 

DR.  L.  D.  UPSON 

By  ARCH  MANDEL 


POWERS  AND  DUTIES 

Sec.  846  General  Code  provides  that  "It  shall  be  the  duty  of  the 
State  inspector  of  oils  to  inspect  all  illuminating  oils,  offered  for  sale 
within  the  State,  for  consumption  therein,  as  hereinafter  provided  in 
this  act  *  *  *  *  ." 

ORGANIZATION 

The  governor,  with  the  advice  and  consent  of  the  senate,  appoints 
a  state  inspector  of  oils  for  a  term  of  two  years,  and  until  his  successor 
is  appointed  and  qualified.  The  state  inspector  of  oils  appoints  and  may 
remove  at  pleasure,  the  number  of  deputies  he  deems  necessary  to  make 
the  inspection  of  oils. 

At  the  present  time  the  department  consists  of  the  oil  inspector 
and  forty-two  deputies  who  operate  in  thirty-eight  districts.  In  the 
office  is  employed  one  clerk. 

Upon  notification  by  a  refiner  or  distributor  of  oil  the  deputy 
makes  an  inspection,  stamping  the  container  "approved"  if  the  test 
shows  a  flashing  point  at  120  degrees  fahrenheit,  or  if  it  shows  a  flash- 
ing point  below  120  degrees,  the  container  is  stamped  "rejected  for  il- 
luminating purposes."  All  oil  sold  for  illuminating  purposes  must  con- 
tain the  stamp  "approved"  or  a  certificate  showing  that  it  had  been  in- 
spected and  approved  if  in  a  tank  car. 

Section  865  General  Code  provides  that  "Gasoline,  petroleum-ether 
or  similar  or  like  substances,  under  whatever  name  called,  whether  manu- 
factured within  the  state  or  not,  having  a  lower  flash  test  than  provided 
in  this  chapter  for  illuminating  oils,  shall  be  inspected  by  the  state  in- 
spector of  oils.  Upon  inspection  the  state  inspector  shall  affix  by  stamp 
or  stencil  to  the  package  containing  such  substance  a  printed  inscription 
containing  its  commercial  name,  the  word  "dangerous",  date  of  inspection 
and  the  name  and  oflicial  designation  of  the  officer  making  the  inspection. " 


INSPECTIONS   MADE 

Barrels  Barrels 

lUuminatiiuj  Oils  Gasoline 

1917    804,673  3,835.676 

1918    £^34,154  3,440,882 

1010    837,549  2,787,172 

2Q8 


ON  ADMINISTRATIVE  REORGANIZATION  299 

FEES 

"The  charges  paid  by  owners  of  oil  for  inspection  are  —  For  a 
single  barrel,  package  or  cask,  twenty-five  cents ;  when  the  lot  inspected 
does  not  exceed  ten  barrels  of  fifty  gallons  each  in  the  aggregate,  for 
each  barrel,  fifty  cents;  when  the  lot  inspected  does  not  exceed  fifty 
barrels  of  fifty  gallons  each  in  the  aggregate,  for  each  barrel,  ten  cents; 
when  the  lot  inspected  exceeds  fifty  barrels  of  fifty  gallons  each  in  the 
aggregate,  for  each  barrel,  three  cents." 

Collections  and  expenses  of  the  office  for  the  past  three  years  are 
as  follows : 

Collections        Expenditures 

1917    $109,340  73  $63,054  33 

1918    13.1,745  83  65,419  31 

1919    141,332  42  68,043  05 

I* 

While  the  oil  inspection  insures  that  no  illuminating  oil,  showing 
a  flashing  point  120  fahrenheit  be  sold,  there  apparently  is  no  limit 
on  the  flashing  point  above  120  degrees  fahrenheit.  In  other  words, 
the  quality  of  the  oil  is  not  insured  by  the  inspection. 

As  far  as  inspection  of  gasoline  is  concerned,  there  is  absolutely 
no  benefit  accruing  to  anyone,  aside  from  the  fact  that  the  mark 
"dangerous"  is  applied.  No  standard  of  quality  is  set  up  and  even 
if  there  were,  inspectors  at  present  are  not  qualified  or  equipped  to 
make  an  efit'ective  inspection  of  gasoline.  The  state  inspector  of  oils 
states  that  occasionally  one  of  his  deputies  will  apply  the  hydrometer 
test  to  gasoline.  As  at  present  carried  on,  a  deputy  might  just  as 
well  send  by  mail  the  tags  marked  "dangerous"  to  be  applied  by  the 
oil  vendors.  It  is  interesting  to  note  that  the  so-called  inspection  of 
gasoline,  which  to  all  practical  purposes  might  be  discontinued,  repre- 
sents by  far  the  largest  product  inspected. 

Oil  inspection  can  and  should  be  made  to  provide  benefits  to  the 
consumer  as  well  as  to  the  incumbents  of  the  positions  created  by  the 
law.  The  benefits  accruing  to  oil  producers  and  vendors  is  now  of 
doubtful  value,  although  inspection  resulting  in  approval,  relieves  the 
vendor  from  all  responsibility  in  case  of  accident. 

RECOM  M  ENDATIONS 

1  —  That  the  department  of  oil  inspection  as  now  constituted  be 

abolished. 

2  —  That  the  inspection  of  oils  be  carried  on  by  the  bureau  of 

standards,  recommended  as  a  subdivision  of  a  department 
of  trade  and  commerce. 

3  —  That  the  minimum  stsmdards  regulating  the  quality  of  illu- 

minating oils  and  gasoline  sold  in  Ohio,  be  set  up  and  en- 
forced by  the  bureau  of  standards. 


300  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  benefits  accruing  to  the  consumer  of  oils  in  Ohio  if  this  should 
be  done  are  obvious.  An  adequately  equipped  laboratory  would  be 
provided  to  which  samples  could  be  sent  where  real  tests  could  be 
made.  At  the  present  time  the  oil  inspection  department  is  not  equipped 
to  make  effective  tests  of  gasoline. 


PUBLIC  UTILITIES  COMMISSION 

By  GAYLORD  C.  CUMMIN 


The  organization,  powers  and  duties  of  this  commission  are  pre- 
scribed in  the  General  Code  in  part  as  follows : 

1 .  "The   public    utilities   commission   shall   consist   of   three   members, 

who  shall  be  appointed  by  the  governor  with  the  advice  and 
consent  of  the  senate."  They  shall  have  overlapping  terms  of 
six  years.     (G.  C.  §487). 

2.  The  chapter  of  the  General   Code  providing  for  the   organization, 

powers  and  duties  of  the  commission  "shall  not  apply  to  street 
or  electric  railroads  engaged  solely  in  the  transportattion  of  pas- 
sengers within  the  limits  of  cities"  (G.  C.  §  503). 

3.  Telegraph,  telephone,  electric  light  and  power,  artificial  gas,  natural 

gas,  pipe  line,  water  works,  heating  or  cooling,  messenger,  sig- 
nalling and  railroad  companies  are  specified  as  public  utilities. 
(G.  C.  §  614-2). 

4.  Municipalities  are  given  power  to  fix  rates  within  their  corporate 

limits.     (G.  C.  §  614-44). 

5.  The  laws  under  which  the  commission  acts  "shall  not  apply  to  any 

rate,  fare  or  regulation  now  or  hereafter  prescribed  by  any 
municipal  corporation  granting  a  right,  permission,  authority  or 
franchise."    (G.  C.  §  614-47). 

6.  "A  sum  not  to  exceed  $75,000  each  year  shall  be  apportioned  among 

and  assessed  upon  the  railroads  and  public  utilities  within  the 
state  by  the  commission",  for  the  purpose  of  maintaining  the 
department.    (G.  C.  §  606). 

7.  The  public  utilities  commission  is  given  power: 

(a)  Over  transportation  powers  and  duties  of  public  utilities 
as  to  passengers  and  property  between  points  within  the 
state.    (G.  C.  §  503)- 

(b)  Over  railway  tracks  and  crossing  (G.  C.  §  585). 

(c)  To  order  gates,  bells,  etc.  at  railway  crossings.  G.  C.  § 
588). 

(d)  To  supervise  and  regulate  public  utilities  and  railroads. 

(G.  C  §  614-3). 

(e)  To  examine  and  keep  informed  as  to  general  conditions, 
capitalization,  franchises  and  manner  in  which  properties 
are  leased,  operated,  managed  and  conducted.  (G.  C.  § 
614-4). 

301 


302  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

■  II, 

(f)  To  require  a  uniform  system  of  accounts.  (G.  C.  § 
614-10), 

(g)  To  fix  reasonable  rates.    (G.  C.  §  614-23). 

(h)    To  determine  value  of  public  utilities.    (G.  C.  §  614-24). 
(i)     To  fix  standards  of  service  and  measurements.    (G.  C.  § 

614-36). 
(j)     To  authorize  public  utilities  to  issue  securities.    (G.  C.  § 

614-53)- 

(k)    To  authorize  dividends.    (G.  C.  §  614-58). 

(1)  At  the  request  of.  council  of  any  municipality  to  investigate 
and  ascertain  the  value  of  any  public  utility  used  and  use- 
ful for  the  service  and  convenience  of  the  public  where  the 
whole  or  major  portion  of  such  utility  is  situated  in  such 
municipality.    (G.  C.  §  499-8). 

The  public  utilities  commission  is  not  of  the  greatest  possible  benefit 
to  the  state  for  reasons  entirely  beyond  its  control.  The  fact  that  at 
present  the  rate  making  power  for  utilities  in  municipalities  is  vested  in 
their  respective  legislative  bodies  and  that  franchises  given  by  municipali- 
ties can  not  be  modified,  changed  or  controlled  by  the  commission  takes 
away  much  of  its  chance  to  give  a  maximum  of  service. 

A  short  discussion  of  the  regulation  of  public  utilities  might  not  be 
out  of  place  in  this  report  to  point  out  that  the  real  interest  of  the  public 
is  best  served  by  control  of  all  utilities  by  some  impartial  tribunal. 

The  public  is  primarily  interested  in  getting  adequate  service  from 
the  utilities  by  which  it  is  served.  It  should  get  this  service  at  the  lowest 
price  at  which  the  service  desired  may  be  secured.  It  is  quite  evident  that 
if  not  enough  is  paid  for  service  the  service  will  deteriorate,  and  if  too 
much  is  paid  the  public  is  being  exploited.  Most  franchises  specify  fixed 
rates  during  the  life  of  the  franchise.  Each  party  to  this  form  of  con- 
tract is  making  a  wager.  The  public  bets  that  the  rate  specified  is  the 
lowest  for  which  adequate  service  can  be  secured ;  the  utility  bets  that 
the  rate  specified  will  earn  them  their  costs  plus  a  profit.  The  interesting 
thing  about  this  wager  is  that  whichever  party  apparently  wins  the  public 
invariably  loses  either  in  too  high  rates  or  failure  to  get  adequate  service. 

It  is  also  perfectly  clear  that  costs  of  service  can  not  remain  constant 
through  a  long  period  of  years,  and  this  fact  has  been  strongly  emphasized 
by  the  happenings  of  the  last  few  years. 

The  cost  of  service  is  a  matter  of  fact  not  theory.  It  is  true  that  the 
exact  valuation  and  the  exact  depreciation  can  not  be  secured,  but  close 
approximations  are  possible,  and  will  give  a  rate  base  fair  to  both  public 
and  utility.  The  utility  is  entitled  to  a  fair  rate  of  return  on  the  capital 
actually  and  prudently  invested,  and  unless  it  gets  such  return  it  is 
financially  unable  to  give  desired  extensions  and  service.    The  public  has 


ON    ADMINISTRATIVE   REORGANIZATION  303 

never  made  anything  by  driving  a  utility  into  bankruptcy  and  never  will. 
A  square  deal  to  both  public  and  utility  is  to  the  public's  best  interest. 

It  would  appear  that  the  fairest  form  of  franchise  would  be  one  in 
which  fluctuating  costs  were  considered  so  that  the  element  of  chance 
would  be  eliminated  as  far  as  possible  and  the  public  would  continually 
get  service  at  as  low  a  price  as  was  consistent  with  the  service  given. 
This  leads  naturally  to  the  so-called  service-at-cost  plans  such  as  the  well 
known  "Tayler  Plan"  used  for  street  railroads  in  Cleveland  and  other 
cities.  This  plan  still  has  a  fundamental  weakness  in  that  no  incentive  is 
given  the  utility  to  cut  its  costs  but  this  can  easily  be  corrected  by  allow- 
ing the  utility  a  slightly  greater  return  when  rates  are  lowered.  This  is 
a  form  of  franchise  where  neither  side  can  win  without  the  other  side 
doing  the  same. 

Regulatory  bodies  are  often  looked  upon  by  the  public  as  being  placed 
in  office  as  the  advocates  of  the  public  only,  but  the  entire  theory  of 
regulation  falls  to  the  ground  unless  the  regulatory  body  preserves  a 
judicial  attitude  and  protects  the  interests  of  both  public  and  utility.  As 
is  indicated  above,  the  basic  interest  of  the  public  is  best  conserved  by 
this  attitude. 

A  state  public  utility  commission  generally  builds  up  a  technical  staff 
of  engineers,  accountants  and  statisticians  who  become  particularly  skilled 
in  the  intricacies  of  determining  fair  rates.  Are  not  the  people  in  the 
municipalities  best  served  by  having  rates  controlled  by  such  a  body  on 
the  basis  of  cost  of  service  rather  than  by  hit  or  miss  francises?  Again 
when  a  utility  serves  several  ad}acent  municipalities  is  it  possible  for  the 
several  legislative  bodies  to  secure  fair  rates  and  good  service  for  their 
respective  communities  without  reference  to  the  utility  as  a  whole? 

The  public  generally  would  have  their  interests  better  conserved  by 
having  all  utilities  under  the  control  of  a  state  public  utilities  commission, 
even  to  the  extent  of  abrogating  the  rate  and  service  standards  contained 
in  existing  franchises. 

A  less  radical  readjustment  would  provide  that  all  new  franchises 
must  be  passed  upon  by  the  state  commission  perhaps  providing  that 
nothing  but  modified  service  at  cost  of  franchises  be  allowed,  that  the 
elements  entering  into  cost  be  finally  determined,  and  that  proper  control 
be  provided  by  the  public  utility  commission..  The  public's  interest  would 
still  be  amply  protected  even  in  case  of  a  poor  commission  as  the  courts 
would  still  be  available  to  prevent  injustice. 

No  positive  recommendations  along  this  line  are  made  because  it  in- 
volves matters  of  public  policy  which  must  be  decided  by  the  people  of 
the  state. 

There  is  a  bill  now  before  the  general  assembly  aimed  to  correct  a 
weak  spot  in  the  present  law  which  left  the  commission  without  power  to 
suspend  a  rate  schedule  filed  by  certain  utilities  pending  investigation 
as  to  the  rates  being  reasonable.    This  correction  should  be  made. 


304  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

This  department  is  further  charged  with  power  to  investigate  acci- 
dents, to  make  and  enforce  service  requirements  of  all  kinds  as  well  as  to 
regulate  rates,  etc. 

RECOMMENDATIONS. 

1.  That  the  public  utility  commission  constitute  a  separate  depart- 
ment with  three  commissioners  as  at  present. 

A  public  utility  commission  exercises  both  semijudicial  and  adminis- 
trative functions,  and  a  several-headed  control  is  justified.  It 
is  believed  that  such  a  commission  should  not  be  under  the  con- 
trol of  any  department. 

2.  TTiat  if  it  becomes  necessary  in  any  case  for  the  commission  to 
make  a  valuation  of  a  utility,  the  cost  thereof  shall  be  shared 
equally  by  the  utility  and  the  political  subdivision  involved. 

3.  That  should  any  political  subdivision  or  any  utility  request  the 
commission  to  make  a  valuation  of  a  utility,  the  entire  cost  shall 
be  paid  by  the  petitioner. 

There  is  good  reason  for  the  state  paying  the  expense  of  its  semi- 
judicial  and  regulatory  functions,  even  though  reimbursed  by  a 
special  tax  on  the  utilities,  as  this  is  a  service  for  the  public  at 
large  in  carrying  out  a  public  policy.  A  valuation  of  a  utility 
is  distinctly  a  service  of  special  benefit  to  the  parties  involved 
and  should  be  paid  for  by  the  recipients.  There  is  sometimes 
a  tendency  for  cities  to  ask  the  commission  for  a  valuation 
chiefly  because  it  is  the  only  way  to  get  it  done  for  nothing,  and 
is  therefore  a  safe  line  of  attack  for  a  public  utility  baiter  with 
his  eye  on  political  preferment.  The  remedy  suggested  above 
will  discourage  useless  valuations.  The  commission  has  ap- 
parently prevented  any  abuse  of  this  privilege  by  municipalities 
by  refusing  to  make  valuations,  but  the  danger  is  there  and  a 
statute  as  suggested  will  relieve  the  commission  of  possible 
trouble.  The  state  now  appropriates  annually  for  this  service 
$68,000  which  might  be  saved. 

4.  That  the  statutes  upon  wrhich  the  commission  is  based  be  re- 
written and  codified  into  a  public  utility  code. 

The  basic  statutes  have  been  amended  and  added  to  from  time  to 
time  and  it  is  believed  that  they  may  be  both  shortened  and  sim- 
plified if  entirely  rewritten. 


EDUCATION 

By  DR.  WILLIAM  H.  ALLEN 


STATE  LEADERSHIP  IN  OHIO  EDUCATION 

The' beautiful  building  shown  on  page  306  houses  a  state  department 
of  public  instruction  with  its  state  library  and  travelling  libraries.  The 
state  is  not  Ohio.  This  report  opens  with  a  neighboring  state's  attitude 
toward  its  state  department  of  public  instruction  as  a  means  of  emphasiz- 
ing certain  next  steps  that  Ohio  should  take  at  once.  Even  though  housed 
in  cramped,  unbeautiful  and  unsatisfactory  quarters  such  as  are  now 
allotted  to  Ohio's  state  department  of  public  instruction  in  the  basement 
of  the  state  house  annex,  a  state  department  can  have  vision  and  can 
efficiently  lead  in  school  work. 

The  rural  school  code  distributed  from  a  dingy  basement  room  has 
revolutionized  rural  schools  in  Ohio  and  perhaps  done  more  for  them  than 
has  been  done  for  the  rural  schools  of  New  York  from  a  beautiful 
Grecian  palace. 

Ohio  school  high  spots  such  as  State  Superintendent  Pearson  printed 
in  the  March  issue  of  the  Ohio  Educational  Bulletin  and  the  appeals  of 
earlier  Teachers'  Week  bulletins  tell  their  encouraging  and  stimulating 
story  as  plainly  as  if  they  had  been  issued  from  a  beautiful  education 
building. 

Nevertheless,  there  is  an  important  significance  in  the  contrast  be- 
tween New  York  and  Ohio  in  the  housing  of  a  state  department  of  edu- 
cation. 

That  contrast  goes  beyond  office  space,  window  views,  and  architec- 
ture to  the  attitude  of  the  people  who  have  the  children  and  pay  the  bills. 
The  people  of  New  York  state  care  no  more  for  education  than  the  peo- 
ple of  Ohio.  It  is  simply  that  New  Yorkers  have  insisted  upon  advertis- 
ing their  interest  in  education  and  their  provision  for  state  leadership 
in  education  as  the  people  of  Ohio  have  not  yet  done. 

Additional  office  space  will  be  needed  if  the  state  department  of 
public  instruction  is  reorganized  to  meet  next  year's  requirements  as 
suggested  in  this  report.  It  is  recommended  that  instead  of  securing 
additional  basement  space  or  loft  space  the  legislature  ask  the  state  de- 
partment of  public  instruction  to  report  a  plan  for  an  educational  build- 
ing adequate  to  house  the  Ohio  board  of  education,  the  circulating  library, 
all  examining  services,  a  state  art  commission,  if  one  is  created,  and 
20  305 


3o6 


REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 


ON   ADMINISTRATIVE   REORGANIZATION 


307 


educational  exhibits  by  the  archaeological  and  historical  society,  state 
universities,  normal  schools  and  unofficial  agencies  engaged  in  promoting 
public  education. 


Offices  of  Ohio's  Department  of  Education. 
In  the  basement   of  the  Judiciary  Building,    or   "Annex"  as   it   is  generally 
called  are  the  offices  of   the  superintendent  of   instruction  and   his   staff.     These 
offices  are  lighted  by  the  two  dark  basement  windows  shown  above. 

If  space  remains  for  other  activities  such  a  building  would  be  an 
appropriate  home  for  the  state  board  of  charities.  If  for.  reasons  of 
economy  and  architectural  fitness  it  should  finally  prove  advisable  to 
house  the  education  department  with  a  number  of  other  state  departments 
it  is  suggested  that  the  imporance  of  education  be  definitely  recognized 
either  by  naming  the  structure  the  Ohio  Education  Building  or  by  giving 
preferential  advantages  of  location  and  space  to  the  state  department  of 
public  instruction. 


OHIO'S  STATE  SUPPORTED  EDUCATION 

Under  the  school  revenue  act  of  1920  half  of  public  taxes  in  Ohio 
will  soon  be  going  to  free  education.  For  discharging  its  responsibility 
for  a  many-sided  educational  program  the  state  of  Ohio  now  uses  the 
following  organizations : 

I — A  state  department  of  pubHc  instruction  (over  one  million 
pupils)  at  the  head  of  which  is  a  state  superintendent  of  public 
instruction,  a  constitutional  officer  appointed  by  the  governor 
without  the  approval  of  the  senate  for  a  term  of  four  years. 
So  far  as  supervision  is  given  to  free  public  schools  it  is 
through  this  officer  and  department. 


3o8 


REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 


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ON   ADMINISTRATIVE   REORGANIZATION  3O9 

2  —  A  state  board  of  education  for  the  administration  of  federal 

vocational  aid  (Smith-Hughes)  appointed  by  the  governor  with 
the  advice  and  consent  of  the  senate. 

3  —  Three  universities  —  Miami   (1033),  Ohio   (1023),  and  Ohio 

state  (6608)  — each  separate  from  the  others,  each  having  its 
own  board  of  trustees  appointed  by  the  governor  with  the 
advice  and  consent  of  the  senate.  By  present  law  the  Ohio 
state  university  is  not  allowed  to  maintain  a  normal  school 
which  as  interpreted  means  a  school  for  training  elementary 
school  teachers,  and  Miami  and  Ohio  universities  are  pro- 
hibited from  maintaining  graduate  schools. 

4  —  An  agricultural  experiment  station  is  maintained  at  Wooster 

under  a  separate  board  of  trustees  named  by  the  governor  with 
the  advice  and  consent  of  the  senate. 

5  —  Two  normal  colleges  are  maintained  at  Bowling  Green  (240) 

and  Kent  (209),  known  in  the  law  as  normal  schools  but  in 
practice  by  the  self-assumed  name  normal  colleges  which  give 
four-year  courses,  with  separate  boards  of  trustees  named  by 
the  governor  with  the  advice  and  consent  of  the  senate.  In 
addition  there  are  normal  colleges  known  in  the  law  as  normal 
schools  at  Miami  and  Ohio  universities  under  separate  deans 
but  responsible  to  the  same  presidents  and  trustees  as  other 
collegiate  departments  of  these  universities.  Furthermore, 
each  of  these  four  normal  schools  maintains  its  own  extension 
service  primarily  for  teachers  already  at  work  in  schools.  These 
extension  courses  are  tied  up  with  the  all-year  courses  and 
summer  courses  and  serve  both  as  feeders  to  the  normal 
schools  and  trainers  of  teachers  in  service. 

6  —  Thirty-five  county  normal  schools    (600  students)   are  main- 

tained by  joint  state  and  county  each  under  the  supervision  of 
the  county  superintendent  of  schools  and  department  of  public 
instruction  working  through  a  normal  school  director. 

7  —  Combined  normal  and  industrial  department  of  Wilberforce 

University  (194  Ohio  students,  575  total),  free  school  for 
negroes  with  free  room  rent  under  a  board  of  nine  trustees, 
five  named  by  the  governor  by  and  with  the  consent  of  the 
senate,  three  chosen  by  the  trustees  of  Wilberforce  university, 
and  the  ninth  the  president  of  that  university  ex-officio. 

8  —  The    soldiers'    and    sailors'    orplians'    home   at   Xenia    (650) 

under  a  board  of  trustees  named  by  the  governor  with  the  con- 
sent and  advice  of  the  senate. 

9  —  Six  school  departments  in  the  girls'  industrial  school  at  Dela- 

ware (450),  boys'  industrial  school  at  Lancaster  (1200), 
women's  reformatory  at  Marysville  (140),  men's  reformatory 


3IO  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

at  Mansfield  (1400),  the  penitentiary  at  Columbus  (2000) 
and  the  new  prison  farm  at  London  (200),  each  of  these 
being  under  executive  officers  responsible  to  four  members  of 
the  board  of  administration  appointed  by  the  governor  w^ith 
the  advice  and  consent  of  the  senate. 

10  —  Two  state  schools  for  the  blind  (180)  and  for  the  deaf  (470) 

both  at  Columbus  and  both  under  the  board  of  administration 
appointed  by  the  governor  with  the  advice  and  consent  of 
the  senate. 

11  —  The   state   library   service   with   its   extension   work,   traveling 

libraries,  library  information  service  and  its  state  library  be- 
longs in  this  category  of  state  supported  educational  work. 

No  central  control  or  leadership  now  exists  for  these  separate  serv- 
ices. No  organization  for  team  work  or  conference  or  mutual  under- 
standing and  helpfulness  exists.  The  three  universities  and  two  normal 
schools  have  a  delegate  council  that  was  created  to  bring  about  cooper- 
ation and  is  capable  of  effecting  a  spirit  and  method  of  team  work. 
The  relations  are  still,  however,  quite  rudimentary  and  do  not  reach  far 
beyond  team  work  in  securing  increased  salaries  and  other  appropri- 
ations from  the  legislature.  Between  this  council  and  other  educational 
forces  there  is  no  cooperation.  The  state  department  of  public  instruc- 
tion while  enjoying  friendly  relations  is  isolated  and  insolated  so  far  as 
the  programs,  methods,  problems  and  results  of  all  state  educational 
agencies  except  the  schools  immediately  under  its  jurisdiction  are  con- 
cerned. In  the  autumn  of  1919  inspections  were  made  of  the  girls'  and 
boys'  industrial  schools  at  the  request  of  the  board  of  administration 
with  results  which  indicate  the  need  for  frequent  and  responsible  visits 
and  reports  by  it  upon  educational  standards  in  correctional  institutions 
and  all  other  state  supported  educational  institutions. 

This  lack  of  organization  and  co-ordination  seems  so  contrary  to 
modern  standards  of  competent  management  tliat  many  Ohio  educators 
have  demanded  a  single  central  executive  who  shall  be  responsible  for 
the  state's  part  in  managing  and  directing  education  from  the  isolated 
child  in  rural  districts  to  graduate  research  work  at  Ohio  state  uni- 
versity.    Three  methods  of  reorganization  have  been  considered : 

I  —  Place  all  state  educational  service  under  one  single  board 
with  a  single  executive  who  shall  be  responsible  for  naming 
the  heads  of  all  separate  services  like  the  presidents  of  the 
three  universities  and  the  two  normal  schools,  the  superin- 
tendent of  the  combined  normal  and  industrial  department  of 
Wilbcrforce,  the  principals  of  the  schools  for  the  blind  and 
the  deaf,  the  educational  heads  in  correctional  institutions,  etc. 


ON   ADMINISTRATIVE   REORGANIZATION  3II 

2  —  Place  the  universities  and  nonnal  schools  under  a  single 

board  and  all  other  educational  services  under  a  state  board 
of  education  with  one  executive  officer. 

3  —  Combine  facts  about  educational  services  before  adminis- 

trators are  combined  and  to  that  end  leave  the  management 
of  institutions  in  the  main  as  it  is  now  but  give  to  a  re- 
organized state  department  of  public  instruction  responsi- 
bility for  studying  lOO'^^^  of  Ohio's  school  needs  and  school 
work  and  for  reporting  facts  about  all  school  activities  and 
needs  to  the  governor,  legislature  and  public. 

The  third  procedure  is  proposed  for  the  following  reasons : 

Until  more  information  is  available  a  single  board  for  administration 
of  all  universities,  normal  schools,  industrial  schools  and  public  schools 
must  work  largely  in  the  dark  and  without  the  means  of  counteracting 
criticisms  arid  opposition  that  would  certainly  develop  from  alumni  of 
state  institutions  and  from  partisans  of  the  present  system. 

Centralization  without  information  equally  shared  by  all  parties  to  it 
almost  inevitably  becomes  autocracy  that  levels  down  and  punishes  initia- 
tive. To  give  one  executive  administrative  responsibility  for  school  work 
in  rural  districts,  cities,  industrial  schools,  county  and  state  normal 
schools  and  three  universities  would  under  present  conditions  mean  that 
one  or  several  phases  of  Ohio  education  would  be  neglected.  While  it 
would  be  serious  enough  to  have  higher  education  neglected  or  teacher 
training  there  is  danger  that  such  centralization  would  result  in  the  neg- 
lect of  the  basic  educational  work  for  elementary  and  secondary  schools. 
On  paper  such  centralization  would  look  business-like.  In  practice  in  a 
state  as  large  as  Ohio,  where  so  much  needs  to  be  done  for  each  branch 
of  education,  it  would  be  unbusiness-like  and  reactionary. 

The  proposal  to  combine  the  three  universities  under  a  central  board 
with  the  two  normal  schools  is  more  feasible.  If  everyone,  a  great 
majority  or  an  aggressive  organized  minority  in  Ohio  wanted  it  done,  it 
would  be  an  interesting  experiment  to  put  over  these  higher  institutions 
a  chancellor  with  responsibility  for  naming  the  presidents,  for  raising 
standards  and  for  effecting  team  work.  The  fact  is,  however,  that  there 
is  not  a  small  active  minority  organized  to  support  such  a  proposal.  Many 
leading  educators  have  seriously  urged  it.  The  time  may  come  when  it 
will  be  desirable.  There  is  a  way  of  working  such  an  organization  which 
would  enable  Ohio's  normal  schools  and  universities  to  do  vastly  larger 
and  better  work  for  a  time.  The  step  is  not  suggested  for  192 1  because 
opposition  to  it  has  already  been  organized  and  entrenched.  Miami  and 
Ohio  universities  have  alumni  throughout  the  state  who  prefer  to  look  at 
educational  problems  through  Miami  and  Ohio  glasses.  The  numerous 
alumni  of  Ohio  State  Universitv  would  want  a  merger  with  other  univer- 


31^  REPORT   OF   JOINT  LEGISLATIVE   COMMITTEE 

sities  only  on  condition  that  Ohio  state  university  dominate  the  combi- 
nation. Nowhere  is  there  a  body  of  information  which  shows  the  simi- 
larity of  purpose  and  of  service  in  a  way  that  makes  a  merging  seem  an 
obvious  need. 

The  utmost  that  is  considered  practicable  in  the  way  of  next  steps 
for  Ohio  is  to  postpone  the  remobilizing  and  concentrating  of  individual 
officers  with  two  or  three  significant  exceptions  and  to  organize  for 
securing  and  publishing  information  respecting  ioo%  of  Ohio's  educa- 
tional needs  and  services. 

The  following  next  steps  are  recommended  as  immediately  practical 
and,  when  taken  together,  as  far  reaching  in  their  promise  of  new  educa- 
tional statesmanship  and  engineering: 

1  —  That  an  Ohio  board  of  education  be  created  as  head  of  the 

state's  educationeJ  system  with  preferably  five  members, 
certainly  not  more  than  seven,  to  be  appointed  by  the  gov- 
ernor with  the  consent  of  the  senate. 

2  —  That  the  powers  and  duties  now  vested  in  the  state  board  of 

education  (for  vocational  education),  the  state  library  com- 
mission, director  of  Americanization,  state  board  of  school 
examiners  and  the  several  examining  boards  for  medicine, 
osteopathy,  nursing,  etc.,  be  transferred  to  this  new  single 
central  Ohio  board  of  education. 

3  —  That  the  executive  work  of  this  central  board  be  discharged 

through  a  director  of  education  to  be  named  by  the  board 
at  a  salary  fixed  by  it  and  to  have  responsibility  for  appoint- 
ing with  the  board's  approval  all  subordinates  except  the  pres- 
ent constitutional  officer,  the  superintendent  of  public  instruc- 
tion. 

4  —  That  the  powers  smd  duties  of  the  present  superintendent 

of  public  instruction  be  transferred  to  the  central  board  of 
education  with  provision  that  the  assignment  of  this  of- 
ficer, whose  present  salary,  S4000,  must  continue  for  four 
years  subject  only  to  constitutional  amendment,  be  by  the 
director  of  education. 

5  —  That  the  law  creating  a  central  Ohio  board  of  education 

specify  the  services  which  will  be  expected  from  it  —  super- 
vision of  rural,  elementary  and  secondary  schools;  surveys; 
visiting  of  all  state  educational  institutions  and  of  private 
teacher  training  colleges  whose  certificates  are  validated  by 
the  state  department;  free  information  and  employment  serv- 
ice; review  of  educational  budgets  against  a  background  of 
public  school  needs;  group  and  regional  conferences  and  other 
services  as  later  herein  listed   and   elaborated  —  but  without 


ON   ADMINISTRATIVE   REORGANIZATION  S^S 

limiting  by  statute  the  organization  necessary  for  discharging 
these  services.  Continued  growth  will  be  more  certain  if  the 
board  and  executive  are  held  responsible  for  fitting  organiza- 
tion to  new  needs  than  if  the  law  sets  up  machinery. 

6  — That  the  Ohio  board  of  education  be  required  through  its 

executive  to  study  all  Ohio  educational  activities,  their  re- 
ports, catalogues  and  other  publicity,  to  report  upon  them 
against  a  background  of  public  school  needs  and  to  report  a 
consolidated  educational  budget  with  recommendations  as  to 
those  steps  most  needed  by  the  whole  state. 

7  — That  the  cost  of  maintaining  a  state  department  of  public 

instruction  be  provided  for  out  of  the  general  school  fund 
and  be  definitely  recognized  as  a  minimum  essential  of  pub- 
lic school  work. 

8  — That  the  separate  boards  for  three  universities  and  two 

normal  schools  be  continued  for  the  present.  To  place  all 
teacher  training  schools  under  one  board  is  impractical  so  long 
as  Ohio  and  Miami  universities  have  normal  schools  withm 
their  organization  and  so  long  as  Ohio  state  university  has  a 
college  of  education.  To  place  one  board  over  the  two  sepa- 
rate normal  colleges  could  accomplish  little  unless  it  could  start 
anew  without  commitments  to  presidents  and  faculties.  A 
co-ordination  of  teacher  training  effort  must  follow  more 
aggressive  leadership  and  comprehensive  study  and  publicity 
by  a  central  board  of  education. 
9  — That  the  combined  normal  and  industrial  department  of 
Wilberforce  university  be  completely  divorced  from  Wil- 
berforce  university  as  outlined  in  a  separate  section  of 
this  report,  and,  if  continued,  be  called  Ohio  normal  and 
industrial  institute. 

I  o  — That  the  Ohio  soldiers'  and  sailors'  orphans'  home  at  Xenia 

be  placed  under  the  director  of  welfare  administration. 

II  _ That  each  of  the  three  universities  and  two  separate  normal 

colleges  be  required  to  organize  a  division  of  administrative 
research  and  reference  for  the  current  study  of  its  own 
problems  methods  and  product. 
12  — That  the  Ohio  state  university  be  authorized  and  expected 
to  organize  extension  work  through  both  field  classes  and 
correspondence  in  subjects  and  in  territory  that  cannot 
practically  be  covered  by  the  extension  courses  of  Miami 
and  Ohio  universities  and  by  Bowling  Green  and  Kent  normal 
colleges;  and  that  it  offer  late  afternoon,  evening  and  Saturday 
classes  in  Columbus  for  teachers  and  others  who  are  employed. 


314  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

13  —  That  the  normal   colleges  be  authorized  and  expected  to 

continue  their  extension  work  for  teachers  as  an  important 
means  of  recruiting  young  men  and  young  women  for  teach- 
ing and  of  helping  them  grow  professionally  and  personally 
after  they  begin  teaching. 

14  —  That  research  work  at  Ohio  state  university  —  by  laculty 

members  for  promotion  of  science  and  for  self-develop- 
ment, by  students  under  faculty  direction  for  training  and 
research  and  for  assistance  to  the  state  —  be  not  only  en- 
couraged by  state  appropriations  but  be  required  by  state 
budget  makers. 

15  —  That   non-resident   students,    excepting   possibly    those    on 

scholarships  from  foreign  countries,  be  required  to  pay 
tuition  at  all  state  supported  institutions  for  the  double 
purpose  of  putting  the  burden  where  it  belongs  while  re- 
lieving Ohio  taxpayers  and  of  emphasizing  Ohio's  obligation 
to  Ohio  students.     (See  separate  section.) 

16  —  That  rotary  funds  or  investment  funds  be  appropriated  to 

educational  institutions  to  be  used  for  building  up  depart- 
ments, not  for  new  undertakings  or  operation  expenses.  For 
example,  the  college  of  agriculture  cannot  possibly  develop  a 
strong  herd  of  best  milkers  and  breeders  if  it  is  unable  to  trade 
or  to  sell  and  buy  without  paying  receipts  into  the  state  treas- 
ury and  receiving  new  budgetary  authority  for  makmg  pur- 
chases. Similarly  profits  from  a  boarding  department  should 
be  available  for  raising  the  standard  of  board  or  for  increasing 
the  facilities  of  boarding  halls,  and  the  working  capital  of 
supplies  in  a  laboratory  should  always  be  available  without 
running  to  the  State  House  for  permission  to  buy  some  new 
chemicals  or  new  mechanical  devices. 

17  —  That  investment  in  student  dormitories  be  made  for  all  of 

the  state  supported  institutions  and  extensive  investment 
for  the  Ohio  state  university  on  the  understanding  that 
these  investments  shall  pay  interest  and  carrying  charges. 

Ohio  taxpayers  will  more  readily  appropriate  money  as  a  per- 
manent interest-earning  investment  than  as  a  gift  to  the  fa- 
vored few  who  are  able  to  maintain  themselves  without  earn- 
ing while  attending  the  university.  Similarly  extension  of 
dormitory  facilities  is  indispensable  at  the  two  separate  normal 
schools  if  the  state  is  to  recruit  the  necessary  number  of 
teachers. 

t8  —  That   all   state   supported    institutions   list    clearly   in   their 
annual  euid  biennial  statements  their  principal  needs  so  that 


ON   ADMINISTRATIVE   REORGANIZATION  315 

taxpayers  and  possible  private  donors  alike  will  see  oppor- 
tunities for  productive  and  patriotic  investment. 

19  —  That  Ohio  adopt  as  a  state  policy  the  development  of  junior 

colleges,  that  is,  colleges  to  be  maintained  by  state  aid,  by 
cities,  groups  of  cities  or  counties  for  the  first  two  years  of 
college;  and  that  state  institutions,  particularly  Ohio  state 
university,  assume  leadership  in  adjusting  courses  of  study 
and  recognition  of  instruction  given  by  cities  and  private  col- 
leges which  will  secure  the  widest  possible  instruction  in  ele- 
mentary subjects  near  or  at  student  residences  and  shall  leave 
Ohio  state  university  free  to  do  strictly  university  or  advanced 
work  including  research  and  experimentation. 

20  —  That  the  aggressive  state  wide  effort  to  recruit  the  ablest, 

strongest  amd  very  elect  of  Ohio's  young  people  into  teach- 
ing which  started  with  Teachers  Week,  1920,  be  continued 
by  the  state  department  of  public  instruction  aided  by  far 
more  comprehensive  publicity  programs  by  the  normal  colleges 
and  particularly  by  Ohio  state  university's  college  of  educa- 
tion. 

21 — That  a  representative  state  educational  council  be  created 
as  a  means  of  enlisting  unofficial  citizen  attention  to  Ohio's 
educational  problems  and  to  the  efficiency  of  Ohio's  educational 
organization  and  machinery. 

22  —  That  in  addition  to  the  supervision  and  audit  here  suggest- 
ed by  the  state  department  of  public  instruction  for  all  edu- 
cational activities,  the  auditor  of  state  and  the  budget  com- 
missioner be  encouraged  and  expected  by  legislative  finance 
committees  to  audit  operation  results  and  publicity  meth- 
ods of  these  educational  agencies. 


OHIO'S  STATE  DEPARTMENT  OF  PUBLIC  INSTRUCTION 

Ohio  wants  not  only  schools  and  enough  schools,  but  enough  schools 
of  the  best  kind. 

Seldom  has  such  emphatic  action  been  taken  by  any  public  through 
its  elected  representatives  as  the  action  of  the  Ohio  legislature  last  week 
in  unanimously  voting  in  both  houses  of  the  general  assembly  additional 
revenues  and  power  to  vote  revenues  for  public  schools  that  exceed  all 
present  plans  for  spending. 

To  take  full  advantage  of  the  additional  possible  revenues  and  to 
comply  with  the  state-wide  demand  for  better  work  by  schools,  Ohio 
needs  to  furnish  through  its  state  department  of  public  instruction  more 
dififerent  kinds  of  help  than  it  is  now   furnishing  to   rural  and  village 


3l6  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

schools,  to  its  city  school  and  to  its  county  normal  schools.  The  state's 
organization  for  serving  individual  schools  should  be  sufficiently  varied 
and  specialized  that  it  will  be  able  to  fit  each  local  need.  It  should  have 
the  most  complete  information  and  the  most  expert  advisers  and  helpers 
with  respect  to  kindergarten  work ;  elementary  work,  in  reading,  history, 
geography,  current  events,  manual  training,  etc.;  home  projects  and  other 
out  of  school  projects  in  learning  by  doing;  best  purpose  and  method  in 
individual  high  school  subjects;  methods  of  studying  and  organizing 
committees,  locating  schools,  and  planning  school  buildings  and  programs 
to  fit  community  needs ;  changes  needed  in  school  curricula  and  in  length 
of  the  school  course;  methods  of  using  so-called  standard  scales  and 
measurements  so  as  to  locate  pupils  and  teachers  who  need  special  help. 
It  needs  an  up-to-date  employment  bureau  for  bringing  together  schools 
that  needs  teachers  and  teachers  that  want  schools.  It  should  be  equipped 
to  make  surveys  of  local  and  county  systems  and  continuous  high  spot 
studies,  always  acting  as  searchlight  for  analyzing  school  experiences  and 
as  distributor  of  knowledge  about  most  helpful  practices  inside  and  out- 
side Ohio.  See  the  three  printed  lists  of  high  spots  in  the  country's 
teacher  training  schools,  and  state  departments  of  education  and  in  Ohio 
county  and  city  schools  collected  for  your  committee's  educational  studies 
by  joint  request  of  the  state  superintendent  of  public  instruction  and 
heads  of  Ohio  teacher  training  schools,  president  of  the  State  Teachers' 
Association,  and  your  agent. 

Moreover,  this  helpfulness  should  henceforth  go  several  steps  farther 
in  two  directions:  i,  the  state  department  should  supervise  the  educa- 
tional work  in  the  state's  two  industrial  schools,  two  reformatories  and 
penitentiary ;  2,  it  should  gather,  receive  and  publish  significant  facts 
about  the  three  universities,  two  state  normal  schools  and  all  privately 
supported  colleges  that  are  training  teachers  for  public  schools  under 
state  certification  and  about  the  relation  of  these  institutions  of  higher 
learning  to  other  publicly  supported  education. 

The  initial  proposals  that  follow  do  not  involve  any  protracted 
debate.  Issues  which  are  known  to  be  in  serious  controversy  or  even  in 
reasonable  doubt  are  taken  up  later.  Only  such  action  is  first  proposed 
as  has  clearly  been  called  for  by  Ohio  educators  who  have  written  or 
spoken  to  the  joint  legislative  committee  on  administrative  reorganization, 
by  reiterated  and  obvious  needs  of  Ohio's  schools  and  by  experience  in 
Ohio  counties  and  cities  and  in  other  states. 

With  almost  complete  unanimity  several  hundred  individual  superin- 
tendents and  faculty  members  have  voiced  the  same  request  as  the  state 
board  of  education  by  resolution  and  the  legislative  and  executive  com- 
mittees of  the  Ohio  State  Teachers  Association  by  resolution ;  and  the 
editors  of  the  two  Ohio  school  journals  that  speak  to  and  for  Ohio's 
teachers  have  urged  the  steps  that  are  here  suggested.  During  the 
National  Educational  Association  Convention  in  Cleveland  on  February 


ON   ADMINISTRATIVE   REORGANIZATION  317 

26,  150  Ohio  educators  after  hearing  the  proposed  reorganization  out- 
lined, and  after  questions  and  answers  regarding  it,  offered  assistance  in 
securing  state-wide  understanding  and  support  of  it. 
This  is  the  proposal  in  brief : 

1  — Create  the  Ohio  board  of  education;  of  preferably  five  but 

not  more  than  seven  members;  to  be  selected  and  appointed 
by  the  governor  without  reference  to  party  affiliations;  one 
term  to  expire  each  year ;  the  board  to  meet  monthly  or  oftener 
from  September  through  June ;  to  forfeit  membership  if  absent 
from  two  consecutive  meetings  without  a  recorded  and  accepted 
excuse. 

2  —  Provide  that  the  expenses  of  the  Ohio  board  of  education 

be  borne  by  the  common  school  fund  for  the  purpose  of 
emphasizing  the  fact  that  this  central  service  exists  only  for 
the  purpose  of  promoting  the  common  schools  and  to  prevent 
the  crippling  of  this  service  for  reasons  having  to  do  with  other 
state  activities  not  provided  for  in  mandatory  taxes. 

3  —  Give  the  board  all  the  powers  now  held  by  the  state  board 

of  education  for  administering  the  Smith-Hughes  law, 
which  merger  the  state  board  of  education  by  resolution  of 
January  19th  asked  the  joint  legislative  committee  on  admin- 
istrative reorganization  to  recommend;  and  abolish  the  present 
state  board  of  education. 

4  —  Give  it  all  powers  now  possessed  by  the  state  superintend- 

ent of  public  instruction  i.  e.  use  the  authority  vested  in  the 
legislature  by  article  6,  section  4  of  the  Constitution,  which 
says  that  the  superintendent  of  public  instruction  shall 
possess  "the  powers  and  duties  now  (September,  1912) 
exercised  by  the  state  commissioner  of  common  schools 
until  otherwise  provided  by  law  and  with  such  other  powers 
as  may  be  provided  by  law." 

5  —  Give  this  central  board  power  to  name  a  director  of  educa- 

tion, naming  if  it  wishes  the  state  superintendent  of  instruc- 
tion, or  if  the  latter  is  not  named  as  director  to  assign  him 
to  duties  under  the  director. 

6  —  Give  it  power  to  reject  or  confirm  the  director's  nomination 

for  subordinate  positions  in  the  department  but  require  it 
after  it  has  once  named  a  director  and  accepted  and  ap- 
proved his  appointments  to  work  through  the  director, 
leaving  to  him  all  administrative  and  executive  relations 
with  his  subordinates. 

7  —  Give  the  central  board  power  to  fix  all  salaries  in  the  state 

department  of  public  instruction  and  to  create  or  abolish 


3l8  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

positions  within  budgetary  provision  made  by  the  legislature. 
The  constitution,  article  ii,  section  20,  forbids  changing  the 
compensation  of  an  officer  during  his  existing  term  unless  the 
office  be  abolished.  The  superintendency  being  a  constitutional 
office  cannot  be  abolished  except  by  amendment  of  the  con- 
stitution, and  the  only  time  that  its  salary  can  be  changed  is 
prior  to  a  new  incumbency.  The  power  to  fix  the  future 
^  salary  should  rest  with  the  state  board. 

8  —  Give  the  central  board  the  duty  to  inspect  or  to  have  in- 

spected and  to  report  annually  to  the  governor  and  to  the 
public  upon  the  educational  work  of  the  girls  industrial 
school,  boys  industrial  school,  Ohio  state  reformatory  for 
men,  Ohio  reformatory  for  women,  penitentiary,  school  for 
the  deaf,  school  for  the  blind,  Ohio's  soldiers  zmd  sailors 
orphans'  home  at  Xenia,  and  the  archaeological  and  his- 
torical society. 

9  —  Give  it  the  duty  to  report  annually  (1)  upon  the  needs  of 

the  five  state  colleges  for  teacher  training  at  Bowling 
Green,  Kent,  Oxford,  Athens  and  Columbus,  the  Wilber- 
force  combined  normal  and  industrial  department,  and  all 
county  normal  schools  and  private  colleges  that  train  teach- 
ers for  state  certification,  and  (2)  upon  the  state's  need  for 
students  in  training  for  teachers,  for  teacher  training  work 
and  for  continued  training  of  teachers  eifter  they  begin 
teaching. 

10  —  Give  to  the  central  board   the  duty   to   visit   and  to  have 

visited  the  three  state  universities  and  to  report  upon  their 
services  to  the  state,  upon  the  state's  need  for  services  not 
yet  rendered  or  not  adequately  rendered  by  the  universi- 
ties, and  upon  the  universities'  needs  if  they  are  to  do  for 
the  state  what   it   should  have  done. 

1 1  —  Give  to  the  board's  director  of  education  the  right  in  per- 

son or  by  delegation  to  a  voice  without  a  vote  at  the  board 
meetings  of  all  state-supported  educational  institutions  and 
require  that  all  formal  and  interim  reports  that  are  sent 
to  the  trustees  of  these  various  institutions  shall  be  sent 
to  the  director  of  education. 

12  —  Require  the  Ohio  board  of  education  to  report  biennially 

upon  all  educational  activities  in  Ohio,  and  upon  tlie  needs 
of  all  pul^licly  supported  education  with  recommendations 
as  to  next  steps  which  the  state  and  its  divisions  —  district, 
county,  city  —  should  take. 

13  —  Require  it  to  report  to  the  governor,  to  the  legislature,  and 

to  the  public  at  the  first  legislative  session  after  its  crea- 


ON   ADMINISTRATIVE   REORGANIZATION  319 

tion  a  pleui  of  internal  reorganization  for  the  department, 
so  far  as  legislation  may  be  needed. 
14  —  Charge  the  new  board  with  responsibility  for  sending  the 
following  to  the  governor  when  a  vacancy  is  about  to  oc- 
cur in  the  constitutional  position  of  superintendent  of  public 
instruction : 

(a)  A  definition  of  the  duties  of  the  post  in  the  board's 
organization. 

(b)  A  list  of  qualifications  of  training  and  experience  neces- 
sary to  fill  such  position  satisfactorily. 

(c)  The  names  of  three  persons  known  to  the  board  to  possess 
such  qualifications,  with  a  statement  of  the  board's  reasons 
for  including  each  name. 

While  it  is  true  that  the  governor  is  free  to  disregard  such  informa- 
tion when  exercising  his  constitutional  power  to  name  a  superintendent, 
it  is  also  true  that  few  governors  would  entirely  disregard  such  mforma- 
tion  or  would  name  a  person  not  on  the  list  who  did  not  possess  equal 
or  superior  qualifications. 

The  reason  for  suggesting  early  action  toward  the  creation  of  an 
Ohio  board  of  education,  is  that  a  new  term  for  the  state  superintendent 
of  public  instruction  begins  in  1920.  If  the  governor  makes  a  new  ap- 
pointment to  the  superintendency  that  inspires  state-wide  confidence,  it 
will  add  greatly  to  the  department's  efifectiveness  to  have  a  continuing 
non-partisan  board  back  of  that  appointee.  If  the  governor  should  name 
one  that  does  not  command  state-wide  confidence,  a  board  possessing 
powers  over  policy  with  the  right  to  reject  unqualified  assistants  and  to 
fix  salaries,  and  if  need  be  to  name  a  director  of  education  other  than  the 
state  superintendent  of  public  instruction,  would  inspire  confidence  and 
would  assure  the  people  of  the  state  that  there  need  be  no  delay  in  taking 
the  steps  which  they  see  should  be  taken  by  the  state  department  of 
public  instruction. 

One  board  of  education  is  needed  in  any  case  in  order  to  obtain 
federal  Smith-Hughes  money  for  teaching  domestic  science,  agriculture 
and  vocations.  If  nothing  were  to  be  accompHshed  by  the  action  pro- 
posed but  the  mere  stopping  of  a  dual  school  system,  vast  good  would 
result.  The  same  minds  that  are  apportioning  federal  aid  for  teaching 
domestic  science,  agriculture  and  industrial  subjects  and  directing  these 
kinds  of  work,  should  be  responsible  minds  in  directing  the  development 
of  the  entire  school  system.  Even  the  present  state  board  which  would 
be  abolished  favors  this  action. 

A  board  with  legislative  powers,  working  through  a  single  executive 
responsible  for  educational  results,  has  produced  and  is  producing  ever 
improving  results  in  Ohio  counties  and  cities.  The  state  is  ready  for  a 
similar  type  of  organization  for  the  direction  of  its  state  education. 


320  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

It  is  true  that  an  able  executive  without  a  board  can  also  accomplish 
vast  results  for  education.  This  has  been  repeatedly  proved  by  Ohio 
commissioners  and  superintendents.  For  such  an  executive  there  are 
certain  ad\  antages  in  being  responsible  to  no  one  but  the  governor.  To 
secure  such  advantages  in  the  case  of  several  other  state  services,  includ- 
ing the  management  of  the  hospitals  and  penal  institutions,  we  have 
recommended  to  your  committee  that  a  board  give  way  to  a  single  execu- 
tive. 1  he  board  should  give  way  to  single  heads  at  every  point  where 
the  work  involved  calls  for  decision  and  execution.  Boards,  however, 
may  properly  be  employed  where  debatable  policies  must  be  worked  out. 
In  the  organization  here  proposed  for  the  state  department  of  public 
instruction,  it  is  suggested  that  the  board  be  confined  to  matters  requiring 
conferences,  discussions,  determination  of  policies  and  legislation,  and 
review  or  test  of  results.  Once  having  fixed  its  policy,  the  board  should 
be  required  to  work  through  the  executive  officer  whom  it  has  selected 
without  the  slightest  interference  with  him  in  the  direction  of  his  sub- 
ordinates or  in  the  execution  of  policies  which  the  board  has  voted. 

This  method  retains  the  advantages  of  a  single  head  which  Ohio  has 
enjoyed  for  many  years,  with  the  advantage  of  a  board  which  Ohio  has 
successfully  employed  for  city  and  county  schools. 

It  has  the  further  and  final  advantage  that  it  will  not  only  make  it 
easy  to  take  the  department  of  public  instruction  "out  of  politics"  but 
will  make  it  seem  easy  and  will  make  the  public  believe  that  politics  will 
be  eliminated.  Heretofore,  until  the  constitutional  amendment  of  1912. 
the  state  department  was  in  politics  to  the  extent  that  canditiates  on 
political  platforms  were  nominated  by  different  political  parties  and  com- 
peted for  the  commissionership  of  education.  Under  the  present  consti- 
tution, two  superintendents  have  been  named,  a  democratic  superintendent 
by  a  democratic  governor,  a  republican  superintendent  by  a  republican 
governor.  The  present  governor  says  he  will  welcome  the  establishment 
of  a  board  because  he  deprecates  the  tendency  which  he  states  is  by  no 
means  limited  to  so-called  "party  politicians"  to  try  to  play  politics  with 
the  state  department  of  public  instruction  whenever  a  new  vacancy 
is  to  be  filled. 

[November.  1920  —  A  second  democratic  superintendent  has  been 
named  by  a  democratic  governor, — formerly  his  rejiuhlican  predecessor's 
deputy.] 

The  creation  of  a  board  whether  named  by  the  governor  as  sug- 
gested or  otherwise,  will  not  entirely  eradicate  the  possibility  of  political 
interference  so  long  as  the  governor  has  the  naming  of  even  a  super- 
intendent of  public  instruction  subject  to  the  board's  assignment.  With 
respect  to  all  other  divisions  of  the  work  politics  can  be  removed  and  an 
atmosphere  created  which  will  render  it  vastly  easier  for  future  governors 
to   choose    superintendents    without    regard    to    political    considerations. 


ON   ADMINISTRATIVE   REORGANIZATION  321 

Once  a  central  board  is  created  for  a  big  service  and  with  power  to 
assign  the  superintendent,  governors  will  welcome  opportunity  to  name 
a  superintendent  capable  of  fitting  into  a  big  service  program. 

In  conclusion,  immediate  legislation  is  proposed  within  the  present 
constitutional  limitation  as  to  the  appointment  of  a  state  superintendent 
by  the  governor,  because  this  is  a  difficult  time  to  secure  either  public 
or  legislative  attention  to  constitutional  amendments,  and  because  with- 
out changing  the  constitution  notable  progress  can  be  made  even  between 
now  and  the  earliest  possible  date  for  voting  on  any  proposed  amendment. 
Using  its  present  powers  the  general  assembly  can  secure  a  reorganiza- 
tion that  by  the  end  of  the  school  year  1920- 192 1  can  easily  have  a 
program  Under  way  which  will  enable  Ohio  to  take  a  place  iccond  to 
none  in  helpful  state  supervision  of  education. 


INCREASE  THE  SALARY  OF  OHIO'S  STATE  SUPERINTEND- 
ENT  OF   PUBLIC   INSTRUCTION 

Reasons    for   Eakiy    Consideration    By   the    Legislature. 

submitted  january  22,  i92o,  to  the  joint  legislative  committee  on 
administrative  reorganization. 

On  February  15th,  the  present  term  of  the  state  superintendent  of 
public  instruction  will  expire. 

On  that  date,  the  governor  may,  without  confirmation  by  the  senate, 
begin  a  new  term  of  four  years  for  a  re-appointment  or  newly  appointed, 
superintendent.  This  new  term  will  run  for  four  years,  no  matter  what 
action  the  legislature  may  later  take  with  respect  to  the  reorganization 
of  the  state  department  of  public  instruction,  unless  after  action  by  the 
legislature  the  people  should  vote  a  constitutional  amendment  changing 
the  term. 

In  seeking  persons  eligible  to  lead  and  direct  Ohio  state's  many 
sided  interest  in  education,  which  now  costs  state  and  municipal  funds 
annually  $68,000,000,  and  will  soon  take  half  of  all  taxation,  the  exec- 
utive is  unavoidably  influenced  by  the  salary  he  can  offer.  For  $4,000, 
the  present  statutory  salary,  he  can  find  persons  whom  other  positions 
are  seeking  at  about  $4,000.  There  is  a  possibility  that  persons  with 
private  income,  and  possessing  qualifications  for  the  office  and  capac- 
ities which  competitive  positions  would  offer  more  than  $4,000,  would 
be  attracted  by  the  opportunities  for  service  which  the  state  superin- 
tendency  offers ;  it  is  however  unsound  public  policy  to  fix  official  sal- 
aries upon  the  gambling  chance  that  men  of  private  income  will  accept 
a  state  salary  for  posts  like  this  at  a  great  financial  sacrifice. 

For  the  present  sabry,  $4,000,  the  governor  can  reasonably  expect 
to  find  only  the  type  of  person  who  before  the  recent  shrinkage  of  a 
21 


322 


KKl^OKT   OF    [OINT   LEGISLATIVE    COMMITTEE 


dollar's  purchasing  power,  could  be  interested  in  positions  paying  about 

$2,000. 

To  attract  in  1920  the  same  caliber  of  educator  which  was  contem- 
plated when  the  salary  was  fixed  at  $4,000,  it  would  be  necessary  to 
offer  from  $8,000  to  $10,000.  The  state  which  has  most  recently  named 
a  superintendent,  Pennsylvania,  is  paying  $12,000,  fixed  by  the  governor 
himself  at  $2,000  above  his  own  salary. 

This  problem  is  raised  with  the  joint  legislative  committee  on  admin 
istrative  reorganization  in  :i(l\;incc  of  our  final  report  on  educational 
reorganization,  because  it  does  not  seem  fair  to  the  million  children  and 
students  in  Ohio's  publicly  supported  schools,  teacher-training  schools 
and  universities,  to  continue  for  four  years  more  a  limitation  upon  the 
state's  ability  to  promote  its  education. 

Instead  of  taking  a  step  backward  at  this  time,  the  people  of  Ohio, 
as  hundreds  of  letters  to  your  committee  have  shown,  want  to  take 
many  steps  and  long  steps  forward,  and  are  more  conscious  than  ever 
before  of  wanting  aggressive  and  constructive  leadership  by  the  state 
supermtendent  of  public  instruction. 

Although  the  state  superintendent,  even  with  the  present  too  limited 
powers  and  program,  is  the  nominal  head  of  Ohio's  public  school  sys- 
tem, his  salary  is  less  than  or  the  same  as  that  of  thirteen  different 
county  superintendents ;  $8,000  less  than  Cleveland's  pre-war  salary  for 
city  superintendent,  and  $6,000  less  than  Cleveland  wall  pay  when  it 
advances  a  present  assistant  superintendent ;  $6,000  less  than  Cincin- 
nati's pre-war  salary;  $2,150  less  than  Dayton's  pre-war  salary;  $6,000 
and  house  less  than  Ohio  state  university  pays  its  president;  $2,000 
less  than  Ohio  university  pays  its  president;  $1000  plus  house  less  than 
Miami  pays  its  president;  $500  less  than  either  of  the  two  normal 
schools,  having  present  regular  enrollments  of  but  slightly  over  200 
each,  are  paying  their  presidents ;  $800  less  than  the  dean  of  agriculture 
and  $1,000  less  than  the  business  manager  is  paid  at  Ohio  state  uni- 
versity; the  same  as  seven  deans  at  the  Ohio  state  university  respon- 
sible for  from  102  to  2,318  students;  only  $500  more  for  superintending 
work  for  one  million  Ohio  students  than  the  dean  of  the  college  of 
homeopathic  medicine  receives  for  superintending  21  ;  but  a  fourth 
more  than  the  superintendent  of  Wilberforce  combined  normal  and 
industrial  school;  less  in  purchasing  power  than  the  superintendent  of 
the  Ohio  reformatory  for  women  and  her  husband  receive  ($2,800  plus 
living)  for  caring  for  150  women;  less  than  the  superintendent  of  the 
girls'  industrial  school  and  her  husband  receive  ($2,800  and  living)  ; 
the  same,  without  living  for  self  and  family,  as  the  superintendent  of 
the  Slate  hospital  f:M-  the  ciiniinal  iiisaiu'  receives;  $3.5fKT  less  than  the 
director  f)f  the  bureau  of    iiivcnilr  research. 

The  disparagement  <.t  thr  state  superintendciKv  of  public  instruc- 
tif)n.    and    tlie   too   small    rniu-e]itinn    of    the    \\ork    it    should    df>    for   the 


ON  ADMINISTRATIVE  REORGANIZATION  323 

state,  are.  further  emphasized  when  we  renieinl)er  that  with  one  excep- 
tion these  contrasting  salaries  are  at  pre-war  rates,  and  that  the  need 
for  fixing  this  salary  at  a  higher  level  is  not  dependent  upon  recent 
increases  in  cost  of  living  and  decreases  in  the  purchasing  power  of  thi* 
salary  now  paid  that  office.  Had  there  heen  no  increase  in  cost  of 
living,  there  would  still  have  remained  the  necessity  and  expediency  of 
placing  this  salary  at  a  much  higher  level. 

Unless  the  salary  of  the  state  superintendent  is  changed  and  made 
compatible  with  the  opportunities  and  duties  of  that  office,  the  state 
cannot  reasonably  expect  the  executive  to  secure  an  educator  who  is  at 
one  time  both  willing  to  accept  the  post  and  equal  to  its  responsibilities 

Furthermore,  if  this  salary  is  not  increased  in  time  to  influence  the 
appointment,  the  legislature  will  find  itself  confronted  by  conditions 
which  may  easily  jeopardize  the  prospect  of  forward  steps  which  are 
universally  conceded  to  be  necessary  in  the  state's  educational  work. 
It  will  naturally  hesitate  to  give  larger  power  and  expanded  organiza- 
tion to  a  superintendent  willing  to  accept  the  position  under  the  present 
salary  disparagement.  Yet  it  will  have  no  other  alternative  if  it  leaves 
the  superintendent  the  acting  head  of  the  state's  public  school  system, 
except  to  continue  such  limitation  of  capacity  for  four  years,  or  else 
to  propose  an  amendment  to  the  constitution,  which  if  conhrmed  1)V 
popular  vote,  might  end  the  term  within  a  year. 

Evidence  has  literally  poured  in  upon  the  joint  legislative  committee 
on  administrative  reorganization  that  the  people  of  Ohio  want  early 
action  without  waiting  for  a  constitutional  amendment ;  that  (Jhio 
wishes  from  its  state  department  of  public  instruction  an  educational 
leadership  and  helpfulness  second  to  none  in  the  land;  that  it  wants 
the  head  of  its  educational  system  to  deserve  a  salary  and  to  rank  in 
salary  second  to  no  other  public  educational  leader  in  the  state  ;  that 
it  does  not  wish  educational  progress  blocked  because  of  salary  rates 
fixed  for  other  heads  of  departments  and  elective  officers  in  earlier 
years  w'hen  a  dollar  would  purchase  twice  as  much  as  it  will  purchase 
today;  and  that  it  wants  this  question  settled  solely  on  the  basis  of  the 
state's  educational  needs  without  respect  to  the  way  in  which  the  legis- 
lature may  deal  with  any  other  salary  questions. 

Therefore,  it  is  suggested  that  the  joint  legislative  committee  on 
administrative  reorganization  consider  recommending  to  the  general 
assembly  that  on  and  after  July  i,  1920,  the  salary  of  the  superin- 
tendent of  pubhc  instruction  be  fixed  at  not  to  exceed  $10,000. 

Tf  this  figure  seems  high,  it  should  be  remembered  that  we  are 
speaking  of  the  foremost  educational  post  in  the  state  of  Ohio  and  of  an 
officer  who  should  be  held  responsible  for  leading  in  state,  county,  city 
and  district  work  that  will  spend  $300,000,000  in  the  next  four  years ; 
and  that  there  is  probably  no  way  in  which  the  state  itself  can  spend 
the  difiference  between  more  moderate  alternative  increased  salaries  like 


324  REPORT   OF    JOINT    LEGISLATIVE    COMMITTEE 

$6,500  or  $8,000  and  $t 0,000  in  the  interest  of  education,  which  will 
accomplish  as  much  for  Ohio  as  can  he  accomplished  by  letting  a  qual- 
ified superintendent  spend  it  as  he  would  spend  it  on  promoting  the 
state's  educational  work. 

After  the  foregoing  reasons  for  increasing  the  salary  of  the  state 
superintendent  of  public  instruction  were  considered  by  the  joint  legisla- 
tive committee  on  administrative  reorganization,  the  chairman  of  that 
committee  introduced  in  the  senate  a  bill  to  change  the  salary  from 
$4,000  to  $7,500.  The  bill  passed  the  senate  and  was  messaged  to  the 
house,  where  by  motion  of  another  member  of  the  same  committee  action 
upon  it  was  deferred. 

That  kills  the  prospect  of  any  increase  for  the  position  of  state 
superintendent  of  public  instruction  until  the  next  legislature  of  192 1, 
unless  by  chance  the  present  general  assembly  should  be  reconvened  by 
call  of  the  Governor  for  reasons  that  would  include  consideration  of 
this  salary.     Such  a  contingency  is  too  remote  to  be  counted  upon. 

If  before  the  next  legislature  meets  the  new  superintendent  is 
appointed,  no  change  can  be  made  in  his  salary  until  the  end  of  his 
term,  except  by  amendment  of  the  constitution.  Should  the  next  legis- 
lature submit  to  the  people  a  proposal  to  amend  the  constitution  so  thai 
the  position  of  superintendent  is  abolished,  then  by  the  end  of  the  year 
192 1  favorable  action  at  the  polls  might  make  it  possible  to  pay  a  newly 
created  office  with  enlarged  functions  the  necessary  salary.  To  wait 
until  the  end  of  1921  for  action  would  mean  practically  losing  two  more 
full  school  years  before  giving  the  schools  the  leadership  they  need. 

One  final  resort  is  open  to  the  legislature  of  192 1.  It  may  use  the 
power  given  to  it  by  article  6,  section  4,  of  the  constitution,  and  accom- 
plish by  indirection  what  the  constitution  says  it  may  not  directly 
accomplish.     This  section  now  reads: 

A  superintendent  of  public  instruction  to  replace  the 
state  commissioner  of  common  schools,  shall  be  included  as 
one  of  the  officers  of  the  executive  department  to  be  ap- 
pointed by  the  governor,  for  the  term  of  four  years,  with 
the  powers  and  duties  now  exercised  by  the  state  C(Muniis- 
sioner  of  common  schools  until  otherwise  provided  by  law, 
and  with  such  other  powers  as  may  be  provided  by  law. 

This  wording  clearly  leaves  it  to  the  legislature  to  decide  what  the 
powers  and  duties  of  the  state  superintendent  of  public  schools  shall 
be.  It  may  "otherwise  provide  by  law"  by  giving  the  duties  of  the  state 
superintendent  of  public  instruction  to  some  other  officer,  say  to  an 
Ohio  board  of  education.  Instead  of  vesting  the  superintendent  "with 
such  other  powers  as  may  be  provided  by  law."  it  may  vest  elsewhere 
as  in  a  director  of  education  these  additional  powers  and  they  should 
be  many. 


ON   ADMINISTRATIVE   REORGANIZATION  325 

The  two  alternatives  then  are  (i)  to  continue  the  leadership  that 
means  either  giving  less  help  than  should  be  given  to  Ohio's  schools  or 
accepting  a  sacrifice  from  some  public-spirited  educator  whose  abilities 
entitle  him  to  more  than  the  present  $4,000  limit,  or  (2)  to  do  by  indi- 
rection what  the  schools  need  to  have  done. 

The  second  course  is  recommended,  namely,  that  the  legislature 
create,  as  it  has  the  power  to  do  without  waiting  for  an  amendment  to 
the  constitution,  an  Ohio  board  of  education  which  shall  be  given  the 
powers  and  duties  possessed  by  the  state  commissioner  of  education 
prior  to  the  constitutional  amendment  of  1912,  plus  all  powers  and 
duties  added  to  the  state  superintendent  since  that  time,  plus  the  fur- 
ther power  of  assigning  the  state  superintendent  of  public  instruction 
to  such  duties  as  his  abilities  and  the  board's  program  for  the  state's 
education  best  equip'  him  to  discharge. 

In  taking  such  steps,  the  legislature  will  act  in  accordance  with  the 
judgment  of  city  and  county  superintendents  in  Ohio,  the  executive 
and  legislative  committees  of  the  Ohio  State  Teachers'  Association,  the 
faculties  of  Ohio's  universities  and  normal  colleges,  numerous  individual 
citizens  of  Ohio  who  have  urged  this  committee  to  make  such  recom- 
mendations and  out-of-state  authorities  on  educational  leadership  who 
answered  your  committee's  request  for  information  and  suggestion. 

Finally,  the  present  state  board  of  education,  which  was  created  to 
administer  the  federal  appropriations  for  vocational  education  under  the 
Smith-Hug'hes  law,  has  by  resolution  asked  this  committee  to  constitute 
one  central  board  in  which  should  be  merged  its  own  present  powers 
and  duties. 

The  urgent  need  for  such  a  central  board  and  a  brief  summary  of 
the  organization  and  powers  which  it  should  have  follow  in  the  report 
entitled  Ohio's  state  department  of  public  instruction. 

POSTSCRIPT 

The  legislature  of  1921  will  find  a  newly  appointed  state  superin- 
tendent of  public  instruction,  the  deputy  for  the  preceding  four  year 
period.  Any  change  now  made  in  the  salary  for  this  post  cannot  become 
effective  until  a  new  incumbent  takes  office. 


TAX  ASSESSMENTS  FOR  SCHOOL  REVENUES 

When  the  legislature  was  working  on  its  revenue  alternatives. 
County  Superintendent  ]\Iaysillis  said  to  your  field  agent :  "If  Ohio 
will  insure  a  correct  and  fair  appraisal  of  property  there  will  be  plenty 
of  money  for  education,  including  appropriate  salaries  for  teaching." 

Whatever  else  is  done  by  way  of  equalizing  taxation  and  increas- 
ing  revenues    for   school   purposes,    it    is    respectfully   urg-ed   that    in 


326  KEFOKT  OF   JOINT    I.EGISLATIVK    COMMITTKK 

fairness  to  the  young  people  who  are  being  educated  in  Ohio's  pubhc 
schools,  and  in  fairness  to  the  state's  program  of  education,  the  legis- 
lature should  provide  for  currently  correct  and  fair  assessments  of 
property.  It  is  a  travesty  on  patriotism  that  prompts  a  state-wide 
program  of  Americanization  while  that  same  state  trains  school  patrons 
throughout  its  counties  to  undervalue  for  lax  purposes  or  to  condotie 
such  undervaluation  by  assessors. 

It  is  unfair  to  young  Ohio  to  be  teaching  them  al)out  ethics,  citizen- 
ship, and  patriotism,  when  right  around  their  school  buildings  is  property 
worth  $208  an  acre  that  is  on  the  payrolls  for  school  and  other  taxation 
purposes  at  $30  or  $50  or  $70  an  acre.  It  makes  no  difference  what  por- 
tion of  taxation  should  be  borne  by  real  estate,  or  whether  there  should 
be  classification  or  no  classification  of  taxes.  Only  harm  can  result  from 
a  state-wide  policy  and  practice  of  falsifying  and  of  being  party  to 
f-ilsifying  property  values  by  saying  through  tax  assessments  that  a  farm 
known  to  be  worth  $10,000  is  only  worth  v$t.500  or  $2,000. 

In  the  interest  of  schools  "an  appeal  is  included  here  for  a  revalu- 
ation and  proper  valuation  of  taxable  realty,  including  farm  lands  in 
poorest  counties,  because  those  very  same  forces  of  tradition,  mis- 
understanding, parasitism,  and  mental  crosseyedness  with  respect 
to  the  patriotism  of  paying  one's  full  share  of  taxes  also  stand  in  the 
way  of  developing  school  policies,  paying  proper  salaries  to  school 
teachers  and  supervisors,  requiring  proper  sui:)ervision,  providing  ade- 
quate school  sites,  insuring  livable  homes  for  teachers,  substituting  central 
for  one-room  schools,  furnishing  transportation  and  forcing  compulsory 
attendance,  modernizing  the  course  of  study,  and  vitalizing  methods  of 
instruction. 


STATE  BOARD  OF  SCHOOL  EXAMINERS 

It  is  suggested  that  the  state  board  of  school  examiners  be  abolished 
and  its  powers  and  duties  transferred  to  the  state  board  of  education 
without  attempt  to  specify  in  the  law  the  details  of  the  way  in  which  the 
state  board  shall  through  the  director  of  education  organize  for  render- 
ing this  service. 

At  present  this  board  consists  of  live  members  appointed  by  the 
superintendent  of  public  instruction.  Continuing  memory  and  continuing 
policy  are  presumably  secured  by  having  one  term  expire  each  year.  As 
this  separate  board  plan  actually  works  out,  the  detailed  responsibility  is 
borne  by  the  department  of  public  instruction.  Members  of  the  examin- 
ing board  can  give  but  little  attention.  In  the  very  nature  of  their  ap- 
pointment and  their  relation  to  the  superintendent  it  is  difficult,  if  not 
impossible,  for  the  department  of  public  instruction  to  have  a  policy,  to 
express  a  judgment,  or  lo  inspect  and  supervise  their  work. 


ON   ADMINISTRATIVE    REORGANIZATION  327" 

The  responsibility  for  fixing  standards  of  examination  for  school 
certificates  should  rest  squarely  and  undodgably  upon  the  state  depart- 
ment of  public  instruction  and  its  executive  officer.  When  responsibility 
is  placed  there  it  will  be  natural  for  the  executive  of  this  department  to 
use  tiie  experience  and  judgment  of  its  supervisors  in  shaping  particular 
questions  and  in  formulating  state  policies. 

The  question  of  certification  needs  immediate  and  continuous  study 
such  as  only  an  administrative  department  can  be  expected  to  give.  Men 
whose  main  business  is  running  city  and  county  school  systems  cannot 
reasonably  be  expected  to  challenge  the  methods  they  are  employing  on 
the  few  occasions  when  they  meet  together.  A  new  board  of  education 
and  a  director  of  education  should  feel  free  and  duty  bound  to  deal 
radically  with  examination  anl  certification.  The  per  diem  of  $5.00  now 
paid  to  five  board  members  would  accomplish  much  more  if  spent  upon 
the  study  of  county  and  state  certification  and  on  standards  of  private 
colleges  whose  credentials  for  prospective  teachers  are  accepted  by  the 
state. 


THE  STATE  LIBRARY  SERVICE 

The  present  state  library  commission  of  three  is  responsible  for  a 
public  general  reference  and  document  library  maintained  in  the  state 
house;  for  the  organization  of  new  libraries;  for  traveling  libraries;  and 
for  the  legislative  reference  library  which  is  in  position  to  render  in- 
estimable service  to  legislature  and  public. 

If  the  library  commission  in  Ohio  were  active,  in  the  midst  of  a 
great  program,  going  full  speed  with  efficient  machinery,  it  would  be 
doubtful  whether  its  functions  should  be  merged  with  that  of  a  state 
board  of  education.  Among  library  leaders  of  the  country  there  is 
a  strong  feeling  that  librar)'--  service  should  be  distinct  and  should  be  a 
strong  suporter  and  competitor  of  the  department  of  education.  Wher- 
ever it  is  a  strong  competitor,  wherever  as  in  some  states  it  is  far  more 
progressive  than  the  educational  system,  it  might  be  a  mistake  just  for 
reasons  of  theoretical  soundness  and  economy  to  rob  it  of  its  independ- 
ence. 

To  your  committee  Director  Bostwick  of  the  St.  Louis  Public 
Library  recommended  an  independent  library  system  not  under  a  de- 
partment of  education  with  a  commission  of  three  and  an  expert  sec- 
retary. Director  Anderson  of  the  New  Ycjrk  Public  Library  urged  a 
"non-political,  non-partisan  commission  composed  of  citizens  who  have 
shown  special  and  intelligent  interest  in  libraries,  said  commission  to 
choose  state  librarian.  The  secret  of  success  depends  on  getting  and 
keeping  library  system  out  of  politics."  He  also  recommended  a  special 
niillage, 


328  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

In  Ohio,  however,  library  services  call  for  a  greatly  enlarged  pro- 
gram by  the  state  and  for  greatly  improved  internal  organization. 
It  will  be  far  easier  to  secure  local  co-operation  for  one  well-led,  big 
program,  than  for  two  separately  organized  programs,  even  if  they 
are  big  and  well-led. 

At  present,  the  library  service  is  not  only  at  a  standstill  but  has 
for  some  time  been  losing  ground.  Such  is  the  emphatic  and  public 
testimony  of  the  Ohio  Library  Association  which  is  in  better  position 
than  anyone  else  to  know  library  needs.  While  that  association  would 
prefer  a  strong  library  commission,  a  newly  organized  department  and 
an  enlarged,  independent  program,  several  of  its  leaders  have  expressed 
to  your  committee  the  belief  that  it  would  be  a  long  forward  step  for 
Ohio  if  the  present  board  could  be  abolished  and  a  state  department  of 
public  instruction  held  responsible  for  developing  library  service  throug- 
out  the  state. 

"Take  it  out  of  politics,"  is  the  first  demand  of  librarians  when 
speaking  of  library  service.  It  is  surprising  that  in  1920  in  a  great 
state  like  Ohio  it  should  be  necessary  to  urge  that  state  library  service 
be  taken  out  of  politics.  Yet,  it  is  necessary  and  insiders  and  outsiders 
alike  admit  that  no  part  of  Ohio's  public  work  is  more  in  politics  than 
the  state  library.  The  governor  told  your  committee's  agent  that  he 
realized  that  the  library  service  is  disorganized.  The  organization  of 
new  libraries  has  practically  ceased  at  a  time  when  such  helpfulness  is 
more  needed  than  ever  before.  At  no  point  except  in  the  legislative 
reference  division  is  the  present  organization  for  rendering  service  at 
all  adequate.  It  is  not  even  organized  to  know  about  the  volume  of 
work  that  it  does,  or  the  multiple  needs  that  it  is  neglecting.  A  great 
asset  in  Americanization  work  has  been  woefully  neglected.  So  demoral- 
ized is  the  service  that  patriotism  and  decency  have,  with  almost  no 
public  protest,  been  defied  by  the  library  commission  in  abetting  its  ex- 
ecutive's refusal  either  to  reemploy  a  returned  soldier  whose  position 
had  been  held  for  him,  or  to  give  reason  for  refusing  him  or  to  admit 
the  facts  in  the  case  to  public  or  legislature. 

If  all  this  library  work  is  transferred  to  a  newly  organized  state 
department  of  education,  there  can  be  created  a  special  library 
division  with  an  able  librarian  at  its  head,  who  will  be  free  from  all 
(.■ntanglenicnts  and  accduntahilitics  in  the  school  field  except  as  he  re- 
ceives direction  from  llie  slate  department  of  education.  What  he 
learns  about  libraries  will  be  available  to  the  schools,  as  it  should  be. 
What  the  school  supervisors  learn  about  library  needs  will  he  made 
available  to  the  library  director,  as  it  should  be,  currently  and  promptly 
and  not  merely  once  a  year.  When  a  cit}  like  lUicyrus  organizes  its 
high  school  librarv  as  a  jniblic  librav)-  until  a  scparati'  imblic  library  is 
(Stablished,  l)ntli  the  soIkuiI  suncrxixdrs  and  llie  lihraiy  supervisors  will 
have  intcrT'Sl    in   ni;ikiii,i;  it    Ismiwii   In  nlhiT  cities   siniilarK'   situated   that 


ON   ADMINISTRATIVE   REORGANIZATION  329 

such  a  practice  works  well  and  greatly  increases  the  use  of  books  by 
adults  and  by  children.  When  later  Bucyrus  organizes  a  public  library, 
if  it  does,  that  fact  and  the  method  will  be  promptly  circulated.  When, 
as  in  several  cities,  the  public  library  puts  branches  in  public  schools 
in  orderto  reach  school  children  and  their  parents,  that  fact  will  readily 
be  made  use  of  by  both  schools  and  library  divisions,  as  it  would  tardily 
be  used  if  at  all  under  the  double  system. 

Library  work  is  educational  work.  It  should  be  recognized  as 
such.  When  Ohio  gets  the  educational  building  which  it  should  soon 
have,  the  library  service  will  appropriately  be  housed  in  that  building. 
In  the  country  district  and  the  small  city,  the  educational  forces  should 
be  united  and  not  divided  in  their  demand  for  libraries.  County  super- 
intendents could  press  a  case  more  strongly,  local  teachers  and  trustees 
would  feel  responsibility  more  keenly,  if  the  state  recognized  Hbrary 
extension  as  an  integral  part  of  its  public  school  program. 

Where  now  library  service  is  exempted  from  competitive  exami- 
nations by  the  general  code,  there  should  be  substituted  a  provision 
that  the  posts  in  library  service  should  go  only  to  proved  capacity 
and  experience.  There  should  be  no  temptation  left  with  any  state 
officer  to  pick  a  library  director  or  a  reading  room  librarian,  accession 
clerk  or  library  stenographer,  for  any  other  reason  than  ability  to  do 
library  service  better  than  other  available  applicants. 


A  REPRESENTATIVE  STATE  EDUCATIONAL  COUNCIL 

In  addition  to  having  an  educational  leader  of  first  rank  as 
director  with  competent  division  heads,  each  of  first  rank  in  his  or  her 
field,  the  state  board  of  education  should  be  charged  with  responsi- 
bility for  seeking  unofficial,  voluntary  suggestion,  information,  criti- 
cism and  proposals  with  respect  to  Ohio's  educational  needs. 

For  this  purpose,  it  is  suggested  that  the  legislature  create  a 
representative  state  educational  council  which  shall  be  called  in  con- 
ference not  less  than  once  a  year,  and  perhaps  semi-annually,  quar- 
terly or  for  special  occasions  deemed  by  the  board  to  warrant  such 
call. 

The  term  "representative"  is  added  to  educational  council  for  the 
purpose  of  emphasizing  the  importance  of  establishing  some  direct  and 
official  contact  between  the  state  department  of  education  and  the  various 
civic  interests  which  are  or  ought  to  be  consciously  working  for  better 
educational  policies  in  their  localities,  counties  and  the  state. 

While  the  formal  appointment  should  rest  with  the  state  board  of 
education  and  certification  should  begin  with  the   representative  body 


330  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

which  seeks  a  share  in  this  co-opeialixe  work.  P'or  example,  the  As- 
sociated Ohio  daihes  would  be  entitled  to  a  delegate  to  the  representative 
educational  council,  as  would  similarly  the  State  Federation  of  Women's 
Qubs,  State  Federation  of  Labor,  the  State  Grange,  Ohio  College  Asso- 
ciation or  other  organizations  of  agricultural  interests,  the  state  Chamber 
of  Commerce,  the  state  Rotarians,  the  state  Kiwanis,  the  State  Hardware 
Association,  the  State  Council  of  Social  Agencies,  the  state  Social  Wel- 
fare Conference,  parent  teachers'  associations,  and  societies  of  private 
colleges,  engineers,  accountants,  dentists,  physicians,  ministers,  etc.  In 
addition  to  private  agencies,  there  should  be  represented  on  this  educa- 
tional council  official  state  agencies  like  the  board  of  charities,  auditor, 
budget  commissioner,  archseological  and  historical  society,  council  of 
health,  universities,  normal  schools,  the  director  of  welfare  administration 
acting  for  the  different  problems  in  state  institutions,  and  teachers'  asso- 
ciations. Nor  is  there  reason  for  excluding  political  parties  from  repre- 
sentation on  the  proposed  educational  council.  On  the  contrary,  there  is 
every  reason  for  hoping  that  they  will  wish  to  be  represented  by  active, 
socially  minded  students  of  education. 

No  salary  should  attach  to  membership  in  this  council.  It  is 
doubtful  if  it  is  necessary  ur  expedient  to  have  the  state  pay  the  ex- 
penses. All  of  these  agencies  have  a  vital  interest  in  education.  They 
pay  the  expenses  of  delegates  to  other  conferences  or  secure  delegates 
who  will  attend.  It  might  strengthen  the  voluntary  character  of  this  serv- 
ice if  the  state  bears  no  part  of  the  expenses  except  the  formal  arranging 
of  the  program,  issuing  the  call,  printing  programs,  publishing  facts 
presented,  questions  asked  and  suggestions  made. 

If  results  are  to  be  obtained,  if  prestige  is  to  be  attached  to 
membership  in  this  council  and  if  serious  work  is  reasonably  to  be 
expected,  it  is  necessary  to  make  it  a  delegate  body  and  not  a  free- 
for-all  membership.  Being  a  delegate  body,  the  numbers  will  be 
small.  The  tendency  to  make  long  stilted  speeches  will  be  checked. 
It  will  be  easier  to  have  serious  work  programs.  The  greatest  gain,  how- 
ever, will  come  from  the  responsibility  which  will  be  assumed  by  the 
various  bodies  which  send  deputies.  'These  delegates  will  often  come 
under  instruction ;  their  reports  back  to  their  constituencies  may  be  easily 
made  to  lead  to  constructive  action  throughout  the  year. 

The  solidarity  of  the  state's  interest  in  education  may  thus  be  con- 
tinually and  progressively  emphasized  among  these  unofficial  agencies 
as  it  will  be  in  the  official  state  department  that  is  held  responsible  for 
advertising  Ohio's  educational  needs  and  activities. 


ON    ADMINISTRATIVE    REORGANIZATION  331 


OHIO'S  STATE  ARCHAEOLOGICAL  AND  HISTORICAL 
SOCIETY 

For  the  work  of  this  private  society  the  legislature  has  appropriated 
$54,  546.00  for  the  biennium  1919-1921.  This  state  appropriation  meets 
only  part  of  the  entire  cost  of  the  society's  work,  the  membership  provid- 
ing the  remainder  of  the  funds. 

The  legislative  appropriation  is  made  on  the  ground  that  the  society 
is  rendering  an  important  public  service.  The  justification  for  continuing 
it  as  a  private  agency  receiving  state  funds  rather  than  incorporating  its 
work  under  the  state  university  is  that  the  work  of  a  state  archaeological 
and  historical  society  calls  for  wide  co-operation  of  individual  citizens 
in  ways  that  would  be  discouraged  if  the  state  were  to  assume  full  control 
and  full  responsibility  for  expenses. 

The  work  of  the  society  consists  of  maintaining  a  nmseum  and 
library  m  a  new  building  i^n  the  campus  of  the  Ohio  state  university. 
It  publishes  a  quarterly  dealing  with  Ohio  archaeology  and  history,  and  is 
making  and  describing  the  results  of  explorations  of  Ohio's  mounds,  vil- 
lages and  sites  of  prehistoric  times.  It  also  acts  as  custodian  of  the  fol- 
lowing properties:  The  Serpent  Mound;  Fort  Ancient;  Big  Bottom 
Park; Logan  Elm  Park; site  of  Fort  Laurens; Spiegel  Grove  Park,  former 
home  of  President  R.  B.  Hayes  where  the  state  has  erected  a  library  and 
museum  building;  and  the  Campus  Martins  at  Marietta. 

The  museum  contains  a  valuable  collection  of  prehistoric  remains 
and  relics,  together  with  the  contents  of  the  former  relic  room  at  the 
State  House,  some  miscellaneous  collections,  and  a  library  of  over  ten 
thousand  volumes  on  Ohio  archaeology  and  history. 

In  the  museum  are  models  of  mounds,  graves,  caches,  etc.,  as  well 
as  progressive  exhibits  showing  the  methods  used  in  making  flint  knives, 
stone  pipes,  bone  fish  hooks,  etc. 

A  small  stock  of  lantern  slides  has  already  been  loaned  to  schools 
and  preparations  are  being  made  to  greatly  extend  this  service. 

One  issue  of  the  quarterly  devoted  to  the  Indian  in  Ohio  is  the  only 
effort  which  we  could  discover  to  reach  the  public  at  large.  The  demand 
for  this  issue  has  proven  the  value  of  publishing  archaeological  and  his- 
torical facts  for  the  average  citizen.  The  technical  reports  on  the  results 
of  excavations  are  of  value  to  the  scientist,  but  unless  especially  worked 
over  for  the  general  reader  would  not  interest  him. 

The  archaeological  atlas  published  should  be  in  every  school  house 
because  of  the  information  on  local  remains  which  it  contains. 

The  museum  is  already  overcrowded  and  much  valuable  material  is 
not  on  exhibition  due  to  lack  of  space.     Fortunately  there  is  room  for 


S3^  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

extension  of  this  building  in  case  the  interest  of  the  society's  membership 
should  justify  considerable  extension  of  the  museum's  space. 

While  on  paper  it  might  seem  desirable  to  reorganize  this  society  so 
that  the  state  should  have  complete  responsibility  for  it  and  place  its 
control  under  the  state  university,  there  are  exceptional  reasons  why  the 
continuance  of  it  as  a  private  membership  society  should  be  recommended. 
There  are  also  reasons,  however,  for  exacting  an  audit  of  its  expenditures 
and  results  by  the  state  auditing  department  and  for  annual  and  biennial 
reports  of  its  contributions  by  the  state  department  of  public  instruction. 

It  is  recommended : 

1  —  That  the  state  department  of  public  instruction  be  charged  with 

responsibility  for  studying  the  work  of  this  society  with  a  view 
to  the  use  of  its  results  by  public  schools,  teacher  training 
schools  and  universities,  and  that  the  results  of  such  inspection 
and  analysis  of  its  budget  estimates  be  submitted  biennially  to 
the  governor,  legislature  and  public. 

2  —  That  the  society  be  encouraged  and  urged  to  establish  a  con- 

sistent and  systematic  method  of  enlisting  citizen  member- 
ships by  way  of  public  information  concerning  local  history, 
mounds  and  relics  of  the  various  counties  with  popular  appeal. 

3  - —  That  special  pamphlets  and  handbooks  be  prepared  for  use  in 

the  schools  with  special  reference  to  local  history,  mounds  and 
relics  of  the  various  counties. 

4  —  That  the  society  be  especially  encouraged  to  continue  the  col 

lection  of  war  data  which  it  has  begun  and  to  use  in  that 
service  local  schools  for  the  double  purpose  of  building  up  in 
each  locality  a  war  cabinet  and  of  furnishing  to  the  state  a 
complete  as  possible  history  of  each  locality's  participation  in 
the  World  War  and  the  reconstruction  work  following  it. 

5  —  That  both  the  society  and  the  Ohio  state  university  be  urged 

to  make  far  greater  use  of  the  society's  research  problems  for 
the  training  of  students  in  research  methods  and  of  the  society's 
j)ublications  and  exhibits  for  iiiteresting  and  informing  students 
and  visitors  during  their  stay  at  the  university  and  during  their 
study  of  Ohio  archaeology  and  history. 

6  —  That  so  far  as  distance  permits  the  society  make  of  vital  use- 

fulness to  Miami  and  Ohio  universities  and  to  the  normal 
schools  of  the  state  its  exhibits,  its  publication?  and  its  out- 
line of  studies  in  the  making. 

7  —  That  the  society  be  asked  to  extend  its  loans  of  materials  to 

schools  not  only  in  Columbus  but  throughout  the  state. 

8  —  That  the  state  house  be  used  again  for  museum  purposes  as 

is  entirely  practical  in  the  corridors;  and  that  the  society  be 


ON   ADMINISTRATIVE    REORGANIZATION  333 

asked  to  arrange  for  trained  attendants  who  can  explain  to 
the  thousands  of  people  who  visit  the  state  house  each  month 
and  the  many  thousands  more  who  would  visit  it  Saturday 
afternoons  and  Sundays  if  its  present  portraits  and  flags  were 
explained  entertainingly  and  were  supplemented  by  loans  from 
the  archaeological  museum;  and  to  that  end  employ  modern 
publicity  methods  of  popularizing  its  messages,  advenising  its 
needs  for  funds  as  opportunities  for  pubhc-spirited  citizens, 
following  up  interest  once  awakened  by  interested  and  inter- 
esting correspondence,  and  guiding  local  historical  societies, 
teachers  of  history  and  individual  students  in  search  for  and 
enjoyment  of  important  facts  about  Ohio's  archseology  and 
history. 
c,_That  Sunday  exhibits  at  the  museum  itself  be  featured  not 
only  for  university  students  but  for  residents  of  and  visitors  to 
Columbus. 

10  —  That  the  society  become  aggressive  and  militant  and  employ  the 

methods  which  have  made  a  great  power  for  entertainment  and 
education  of  the  National  Geographic  Society  and  the  Ameri- 
can Museum  of  Natural  History. 

11  — That  as  part  of  its  archaeological  museum  it  collect  and  exhibit 

graphic  descriptions  of  progress  in  teaching  history  with  a  view 
to  hastening  the  abandonment  of  methods  in  Ohio's  schools  or 
colleges  that  chill  and  crush  the  natural  interest  in  the  study 
of  history  which  it  is  so  important  for  a  democracy  to  develop. 


AN  ART  COMMISSION  FOR  OHIO 

Among  the  suggestions  made  to  your  committee  by  faculty  members 
were  two  looking  toward  a  state  art  commission : 

1  _  A  state  art  commission  is  needed,  a  body  of  professional  men 

to  pass  on  the  artistic  merits  of  public  buildings  and  to  develop 
public  good  taste. 

2  —  There  is  need  for  greater  appreciation  of  all  things  organized 

and  beautiful  about  the   farm,  home,  rural  school,  churches, 
roads,  parks. 
It  is  recommended  that  the  work  usually  done  by  an  art  commission 
be  organized  under  the  proposed  Ohio  board  of  education. 

The  work  of  an  art  commission  may  fittingly  be  located  with  state 
education  and  in  the  new  education  building  that  is  needed.  It  is  not 
the  kind  of  problem  that  calls  for  continuous  attention  of  professional 
men.     It  is  believed  that  much  better  results  can  be  accomplished  if  as 


,^34  REPORT  OF   JOINT    LliGISLATlVE    COMMITfEE 

each  new  public  building  or  project  is  under  construction  the  particular 
professional  men  are  called  in  who  have  most  to  contribute.  A  board 
appointed  for  a  long  term  would  come  to  have  a  perfunctory  interest  and 
might  even  find  itself  in  the  embarrassing  position  of  trying  to  protect 
itself  from  criticism  for  previous  judgment  unsatisfactory  to  the  public. 
Finally,  the  most  important  work  of  an  art  commission  is  its  promotion 
of  public  taste  through  popular  education  and  for  such  work  no  other 
agency  can  possibly  equal  the  agency  that  is  in  constant  contact  with  the 
teaching  force  of  the  state. 

The  following  incident  of  a  day  spent  with  Dr.  Richard  C.  Cabot 
of  Boston  will  help  show  why  it  is  believed  that  Ohio  needs  provision 
for  constant  attention  to  the  art  side  of  life.  About  ten  years  Ago  after 
a  day  in  Boston  with  Dr.  Cabot  charting  the  activities  of  a  church  which 
was  then  much  under  discussion  for  its  proposed  alliance  of  medicine 
with  religion,  Dr.  Cabot  said  he  would  like  to  spend  another  day  charting 
a  modern  city's  interest.  We  had  the  day  and  we  charted  a  city.  Seek- 
ing an  expression  which  would  compass  all  the  different  activities  of  a 
city,  I  wrote  in  my  big  master  circle  "community  needs";  Dr.  Cabot 
wrote  in  his  "creative  human  aspiration."  He  suggested  research;  I 
protested  that  the  term  "research"  would  hardly  belong  to  the  untutored 
mind  or  less  tutored  mind,  although  the  impulse  referred  to  was  shared 
by  all.  "Truth  seeking"  went  into  that  circle.  When  Dr.  Cabot  wrote 
"art"  in  the  last  circle,  I  voiced  another  doubt  and  said :  "You  are  an 
artist;  you  sing;  you  play  the  violin  and  piano;  you  write  plays;  you  act; 
you  paint.  I  can  do  none  of  those  things  yet  there  is  something  in  that 
circle  which  belongs  to  me."  "Beauty  making"  was  written  in  that  last 
circle. 

The  kind  of  art  commission  which  Ohio  needs  is  not  so  much 
one  which  will  insist  upon  conventional  "artistic  merit"  in  public 
buildings,  but  which  will  keep  alive  throughout  the  state  an  interest 
in  beauty  making.  It  is  a  vastly  bigger  ideal  to  have  the  public 
keenly  interested  in  beauty  making  —  in  the  country,  around  farms,  on 
school  grounds,  within  school  rooms,  in  front  yards,  in  approaches  to 
towns,  through  railroad  stations  and  in  public  buildings  —  than  to  have 
a  uniform  and  acceptable  type  of  architecture  at  the  university. 

Typical  of  work  which  an  organized  art  interest  in  instructional 
service  under  the  Ohio  board  of  education  could  do  these  are  cited :  In 
Wooster  every  school  has  organized  the  beautification  of  school  ground 
under  the  direction  of  a  landscape  architect.  In  Alliance,  the  slogan  is 
"Alliance  Beautiful."  Lakewood  has  an  Art  League  to  promote  art  and 
music  appreciation,  with  a  branch  in  each  building,  each  room  a  chapter 
named  for  an  artist;  great  paintings  and  operas  are  studied.  The  state's 
art  service  could  tell  such  facts  as  these  over  and  over  again  until  all 
cities  and  schools  have  a  similar  interest.  In  the  state  of  New  Jersey 
the  commissioner  of  education  has  issued  plans   for  beautifying  school 


ON   ADMINISTRATIVE    REORGANIZATION        ^  335 

grounds  with  instructions  to  children  about  drawing  plans,  writing  to 
commercial  houses  for  suggestions  and  prices.  A  few  years  ago  in 
Illinois  an  illustrated  circular  was  issued  by  a  university  department 
entitled  "The  Farm  Beautiful"  and  was.  offered  free  to  anyone  who 
would  promise  during  the  year  to  take  one  step  toward  beautifying  one 
home  or  pubHc  plot.  Such  work  can  and  should  be  done  through  a  state 
art  service.  When  Ohio  builds  a  new  education  building,  as  it  should, 
or  adds  an  extension  to  the  library  at  O.  S.  U.,  or  the  historical  society's 
building,  or  even  makes  changes  at  the  state  fair  grounds,  all  the  people 
in  Ohio  should  be  organized  to  see  that  these  additions  are  beautiful. 

It  is  cheating  the  public  and  clearly  cheating  the  public's  children 
who  pass  by  or  study  in  state  buildings  if  these  state  buildings  are 
not  beautiful,  inside  and  outside.  It  would  have  been  worth  a  great 
deal  to  Ohio  if  there  had  been  an  art  commission  such  as  is  here  proposed 
from  the  beginning  of  the  Ohio  State  University  so  that  all  of  the  build- 
ings might  have  been  as  beautiful  as  some  of  the  later  buildings  are. 

It  is  true  that  Ohio  is  more  fortunate  than  many  of  its  sister  states, 
which  means  perhaps  that  it  is  better  prepared  today  to  demand  public 
art  and  public  beauty  making  and  to  foster  public  appreciation  of  beauty. 
A  striking  case  in  a  sister  state  is  reported  by  its  governor  as  follows: 
"When  we  saw  those  hideous  buildings  which  violate  every  canon  of  art 
and  which  swear  at  one  another,  the  dean  said,  with  a  wave  of  his  arm, 
'And  we  have  never  employed  an  architect.'  I  answered,  'Yes,  I  can 
see  that  at  a  glance.'  " 

Those  Ohioans  who  are  confronted  by  the  affront  to  art  sense  in  so 
many  moving  picture  films  will  see  that  perhaps  the  most  effective  way 
to  secure  higher  aesthetic  standards  in  public  entertainment  will  be  to 
promote  statewide  development  of  the  aesthetic  sense  which  includes 
love  of  beauty  and  a  share  in  beauty  making. 

If  this  suggestion  is  adopted  it  will  work  out  somewhat  as  follows : 

1  —  The  Ohio  board  of  education  would  be  held  responsible  for 

having  reviewed  from  the  standpoint  of  beauty  euid  con- 
formity to  art  standards  and  art  requirements  all  plans  for 
state  buildings  and  state  parks. 

2  —  It  is  also  desirable  to  give  this  same  power  of  review  with 

respect  to  structures  facing  state  buildings  or  state  grounds 

as  is  the  case  in  New  York  where  the  municipal  art  commission 
has  added  millions  upon  millions  tO  the  value  of  both  public 
and  private  property  by  giving  timely  assistance  and  an  occa- 
sional veto. 

3  —  Continuity  of  study  and  attention  will  be  given  through  a 

subordinate  of  the  director  of  education. 


336  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

4  —  As  new  plans  are  submitted  the  board  of  education  would 

name  a  commission  or  jury  of  specialists  best  equipped  to 
review  the  particular  problems  at  issue.  After  the  report 
had  been  made  by  this  voluntary  group  and  acted  upon  officially 
by  the  board  of  education,  the  voluntary  commission  would 
cease  to  be  a  commission. 

5  —  The  power  should  be  given  to  the  Ohio  board  of  education 

by  the  legislature  not  only  to  review  the  plans  but  to  pre- 
vent the  erection  of  buildings  or  the  modification  of 
grounds  belonging  to  the  state  or  facing  upon  state  pr<^- 
erty  which  clearly  violate  the  standards  of  beauty.  In 
most  cases,  fortunately,  architects  and  builders  are  grate- 
ful for  the  advice  given  by  an  art  commission  and  will 
gladly  substitute  improved  for  unacceptable  plans. 

6  —  The  art  service  of  the  state  under  the  board  of  education 

could  use  steps  similar  to  those  recommended  for  the 
Archaeological  and  Historical  Society  to  utilize  the  interest 
of  localities  and  of  state  agencies.  This  cooperation  would 
especially  include  the  interest  of  boards  of  managers  at  state 
supported  institutions. 

7  —  A  progressive  educational  campaign  will  be  made  through 

the  schools  and  normal  schools  to  interest  teachers  and 
local  school  boards  in  making  the  schools  living  examples 
as  well  as  preceptors  in  promoting  community  art. 

8  —  Assistance  will  be  offered  to  local  conunittees  which  in  the 

next  few  years  will  be  erecting  many  memorial  monuments 
and  buildings.  It  costs  no  more  to  erect  beautiful  memo- 
rials than  hideous  ones.  No  one  wants  to  dot  Ohio  with 
inartistic  memorials  to  soldiers  and  sailors  in  the  World  War. 
Everyone  will  welcome  state  leadership  at  this  time  when  so 
many  communities  are  trying  to  decide  the  form  to  give  monu- 
ments or  other  memorials. 

9  —  Handbook  material  will  be  issued  showing  in  how   many 

ways  beauty  making  is  a  money  making  asset  for  a  state 
which  attracts  visitors  and  attracts  laborers. 

10  —  Conferences  will  be  called  to  consider  what  can  be  done 

from  time  to  time  for  beauty  throughout  the  state. 

1 1  —  The  commission  should  be  required  to  report  to  the  gov- 

ernor and  the  public  at  least  biennially,  and  oftcner  if  it 
wishes,  respecting  the  forces  working  against  appreciation 

of  beauty  and  beauty  making,  as  for  example,  treatment  of 
the  state  capitol  like  permitting  dirt  to  accumulate,  or  per- 
mitting litter  on  the  ground  of  state  buildings,  etc. 


ON  ADMINISTRATIVE   REORGANIZATION  337 

-Cradually  a  body  of  information  will  be  built  up  which  can 
be  used  for  teaching  purposes  in  schools  and  for  study  pur- 
poses by  architects  and  builders  including  the  great  indus- 
trial builders.  Few  contributions  to  art  have  ever  been 
made  by  any  man  that  surpass  in  significance  the  Wool- 
worth  Building  in  New  York  City,  it  would  have  been  im- 
possible had  not  the  industrial  builder  been  able  to  appre- 
ciate the  plans  submitted  by  the  architect.  It  will  mean 
much  to  Ohio's  industrial  future  to  have  a  state  department 
of  public  instruction  teaching  school  children,  teachers  and 
parents  the  durable  satisfaction  of  outward  beauty  and  of 
inward  desire  to  participate  in  beauty  making. 


SUGGESTIONS  BY  COUNTY  AND  CITY  SUPERINTENDENTS 
FOR    IMPROVING   OHIO'S    PUBLIC   EDUCATION 

Typical  of  helpfulness  which  is  always  available  to  the  legislature, 
to  the  universities  and  normal  schools  and  the  state  department  of  public 
instruction  are  the  following  suggestions  received  by  your  committee 
from  county  and  city  superintendents  of  schools,  in  answer  to  its  request 
for  school  men's  "co-operation  in  its  search  for  opportunities  to  increase 
the  helpfulness  of  state  departments  not  only  to  public  welfare  in  gen- 
eral but  to  education  in  particular." 

No  attempt  is  made  to  distinguish  between  suggestions  commg  from 
counties  and  others  coming  from  cities  because  there  is  little  significance 
in  that  distinction.  Nor  are  names  given  because  the  value  of  the  sug- 
gestion is  in  the  use  that  can  be  made  of  it  and  not  in  its  source.  When 
properly  organized  the  state  department  of  public  instruction  will  be 
drawing  upon  county  and  city  experience  and  thus  keeping  alive  currents 
of  question,  inventiveness  and  cooperation  from  the  innumerable  "sub- 
scribers" through  educational  headquarters  acting  as  "central". 

I  —  In  what  ways  can  the  helpfuhiess  of  state  departments  to 
public  welfare  be  increased? 

Departments  should  send  teachers  to  teachers'  institutes; 
reports  are  now  often  ancient  history;  penal  institutions  should 
be  under  the  control  of  the  state  department  of  education  and 
made  into  industrial  schools;  stop  excessive  supervision  by 
state  officers  over  university  and  normal  school  expenditures; 
deficient  children  should  be  removed  from  all  rural  schools  and 
otherwise  provided  for;  law  enforcement  should  be  more 
vigorous  with  respect  to  imbeciles  where  there  is  much  talk 
and  little  action  at  the  present  time, 
22 


33'"^  REPORT  OK   JOINT   LEGISLATIVE    COMMirfEl-: 

2  — How  can  road- building  be  made  more  useful  to  schools? 

We  yearn  for  consolidation  ;  we  depend  on  roads ;  using  the 
school  as  a  center  all  important  roads  leading  to  it  should  be 
improved ;  roads  should  be  constructed  to  aid  centralization  and 
consolidation;  wu^iout  roads  centralization  is  impractical;  the 
educational  need  tor  roads  has  never  been  adequately  con- 
sidered ;  rebuild  without  tearing  up ;  develop  side  roads,  not 
merely  the  main  roads;  give  roads  used  by  pupils  priority; 
build  better  roads  so  that  so  much  need  not  be  spent  on  repairs. 

3  —  What  state  activities  do  you  think  should  be  discontinued? 

Voluminous  reports  which  are  not  read :  "none,  we  want 
more  of  them" ;  the  state  board  of  agriculture  is  not  needed ; 
last  spring  four  men  were  getting  $2O,G0o  on  one  job  (place  not 
specified). 

4  How  can  schools  be  helped  more  by  the  three  state  univer- 
sities? 

Let  the  universities  join  the  Ohio  State  Teachers'  Asso- 
ciation in  working  out  i)olicits  for  the  state ;  let  them  give 
closer  cooperation ;  assist  in  special  courses ;  give  free  ad- 
dresses; hold  exhibits  on  child  welfare  and  provide  free  loans; 
organize  corresipondence  courses ;  help  study  special  problems ; 
furnish  experts;  have  survey  departments;  organize  depart- 
ments for  scientific  tests :  keep  closer  touch  with  actual  school 
work ;  help  rural  schools  in  back-to-school  drives. 

Let  them  turn  out  better  prepared  teachers ;  train  more 
grade  teachers;  go  farther  with  extension  classes;  cooperate 
on  surveys  of  children's  aptitudes ;  give  more  attention  to  phys- 
ical education ;  hold  short  summer  sessions ;  two  or  three  weeks 
for  county  superintendents  under  the  direction  of  the  state 
superintendent,  to  unify  work;  have  personal  representatives 
visit  schools;  develop  more  leaders  for  rural  districts;  have 
real  rural  departments  which  now  are  "a.  joke";  make  courses 
more  practical;  broaden  the  extension  service  to  fit  the  rural 
schools ;  encourage  more  distinctly  rural  high  schools  fitted 
with  community  needs  so  that  there  will  be  less  city  high  school 
work  in  the  county. 

Let  universities  make  themselves  more  thorough  and  demo- 
cratic ;  keep  university  boards  separate  from  the  central  board 
of  education  for  they  now  have  large  numbers  of  alumni  and 
great  political  strength  which  would  enable  them  to  get  men  on 
a  central  board  but  would  not  be  interested  in  public  educa- 
tion and  teacher  training. 


ON   ADMINISTRATIVE   REORGANIZATION  339 

5_How  can  schools  be  helped  more  by  the  agricultural  ex- 
periment station? 

Let  it  have  a  mailing  list  of  schools ;  send  out  material ; 
use  each  school  for  clearing  house ;  place  every  school  child  on 
the  list;  put  out  bulletins  which  children  can  read;  see  that 
farmers  get  them  through  schools;  hold  farmers'  meetings 
because  bulletins  are  ineflfective  unless  there  are  community 
gatherings  to  discuss  them;  give  schools  more  results;  have 
closer  cooperation  with  the  county  agent  and  the  schools; 
provide  loan  exhibits  and  lectures ;  encourage  every  school  to 
have  its  own  plot;  demonstrate  in  connection  with  schools; 
give  more  instruction  in  village  and  central  schools;  make  a 
closer  study  of  local  conditions;  encourage  local  county  farm 
studies;  report  to  farmers  immediately  after  investigation. 

6_How  can  schools  be  helped  more  by  normal  schools? 

The  normals  and  Ohio  state  university  should  be  under 
■separate  boards  to  prevent  the  university  from  dominating  the 
normals  to  the  detriment  of  teacher  training;  normals  should 
give  lectures,  exhibits  and  speakers;  and  far  more  extension 
work  to  include  medical  inspection  and  nursing;  much  more 
extension  in  the  winter  when  attendance  is  small ;  more  rural 
work ;  surveys  of  children's  needs ;  free  demonstration  lessons. 

Normals  should  hold  conferences  with  public  school  men ; 
give  closer  study  to  conditions  and  needs  of  schools;  place 
larger  emphasis  upon  training  in  citizenship  for  community 
and  national  affairs;  offer  specialized  courses  in  each  subject 
including  domestic  science  and  manual  training;  be  under  the 
direct  control  of  the  state  superintendent ;  give  full  credit  for 
county  normals;  have  practice  teaching  the  first  year;  train 
more  in  how  to  manage  school;  deal  more  intelligently  with 
physical  education ;  organize  department  of  tests  and  measure- 
ments to  cooperate  with  county  superintendents  in  scientific 
administration  of  the  schools;  have  higher  qualifications  for 
their  own  instructors. 

Normals  should  give  more  practical  courses ;  give  less  time 
to  methods  and  more  to  subject  matter;  provide  more  practice 
teaching ;  train  teachers  for  rural  work  who  are  in  sympathy 
with  rural  activities;  train  teachers  for  rural  leadership;  teach 
real  rural  work  instead  of  forcing  city  school  systems  on  rural 
districts;  give  full  credit  for  time  spent  in  county  normals; 
limit  short  courses  to  essentials ;  do  not  confine  instructions  to 
any  particular  textbook;  be  more  thorough  in  fundamentals; 
give  more  definite  training  for  particular  grades ;  help  teachers 
see  better  the  difference  between  theory  and  practice;  strive 


340  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

more  to  reduce  the  cost  of  attending  them ;  discontinue  summer 
six  weeks  [rather,  strengthen  their  work]. 

Every  county  should  have  one  good  strong  county  normal  ; 
if  properly  organized  county  normals  would  do  a  large  part 
of  Ohio  teacher  training;  at  present  county  normal  schools  are 
lacking  in  proper  direction,  equipment  and  number  of  students. 

All  normal  school  instructors  should  be  experts  in  actual 
school  work  and  rural  school  work ;,  normals  should  develop 
definite  plans  to  increase  the  supply  of  teachers. 

7  —  How  can  schools  be  helped  more  by  the  state  department 

of  health? 

Let  it  have  recognition  among  us  and  support  m  every 
county;  furnish  lecturers  to  schools;  inspect;  supervise;  make 
health  surveys  of  school  room  sanitation  and  hygiene;  cooper- 
ate with  school  nurses  and  physicians;  furnish  sex  hygiene 
charts ;  loan  volumes  and  slides ;  examine  the  mentally  sub- 
normal [belongs  to  the  bureau  of  juvenile  research  which  is 
prepared  to  do  this  work]  ;  organize  local  groups  to  build 
dispensaries  and  hospitals;  maintain  nurses  for  the  rural 
schools;  provide  visiting  nurses  for  all  schools;  make  nursing 
compulsory. 

8  —  How  can  schools  be  helped  more  by  the  state  department 

of  public  instruction? 

Stop  treating  it  in  the  present  shamefully  niggardly  way; 
it  should  have  leadership  and  direction  in  school  afifairs  and 
be  permitted  to  develop  constructive  school  policies :  should 
formulate  school  legislation  to  submit  to  the  legislature ;  should 
have  power  to  inspect  all  places  where  children  are  taught, 
whether  public,  private  or  parochial ;  should  be  a  select  board 
chosen  wholly  from  schools  [doubtful  advice]  ;  should  propose 
constructive  school  legislation,  seek  more  school  funds  :  urge 
consolidation,  conduct  occasional  meetings ;  should  have  man 
power  sufficient  to  follow  up  all  work  started  and  to  finish  up 
its  suggested  programs  of  work ;  should  have  more  power  to 
act;  should  be  taken  out  of  politics;  jM-ovide  it  with  more 
expert  assistants. 

Name  a  state  superintendent  at  from  $10,000  to  $15,000; 
get  biggest  educational  leader,  "then  he  will  do  the  rest" ;  hav- 
ing appointed  a  superintendent,  should  name  subordinates  only 
at  his  recommendation ;  should  give  him  power  and  hold  him 
responsible  accordingly;  work  out  policy  and  system  so  that 
local  prejudice  may  not  defeat  the  purpose  of  education ; 
develop  more  definite  educational  program  that  reaches  into  the 


ON   ADMINISTRATIVE   REORGANIZATION  34^ 

school  room ;  should  be  held  responsible  for  results  in  all  edu- 
cational institutions ;  give  it  power  to  organize  faculties  in  the 
normal  schools;  give  it  more  initiative  and  more  power  to 
require  conformity  to  its  standards;  require  all  other  educa- 
tional activities  to  function  in  harmony  with  plans  made  by  it ; 
make  surveys,  conduct  research  and  collect  useful  data;  have 
more  field  workers  so  that  there  would  be  rural  and  village 
supervisors;  send  speakers  to  county  teachers'  and  farmers' 
institutes ;  determine  the  minimum  essentials  for  rural  schools. 
Organize  night  schools  and  education  for  adults;  give  more 
aid  to  institutes;  give  special  help  in  different  subjects  espe- 
cially in  nature  study  [using  for  this  purpose  actual  best 
teachers]  ;  recommend  text  books ;  enforce  uniform  text  books 
and  uniform  courses  of  study ;  give  more  specific  helps  and 
suggestions  for  "we  are  in  need  of  knowing  what  the  other  fel- 
low is  doing" ;  issue  monthly  bulletins  for  teachers  and  board 
members;  have  special  primary  and  supervisors  of  rural 
schools ;  furnish  close  supervision. 

Its  building  department  should  handle  all  inspection  includ- 
ing fire  protection  which  high  school  inspectors  could  do,  where 
now  there  is  district  fire  inspection  and  industrial  commission 
inspection  besides  three  inspections  by  under-writers ;  aid  in 
securing  higher  performance  in  districts;  have  speciaHsts  in 
interpreting  school  laws. 

Give  as  much  attention  to  elementary  as  to  high  schools 
and  correct  condition  where  now  "to  meet  high  school  stand- 
ards many  counties  are  robbing  the  children  of  the  grades,  the 
more  democratic  institutions";  elementary  schools  should  re- 
ceive the  same  support  and  supervision  as  high  schools;  aid 
educational  work  in  communities  which  will  not  vote  money 
for  buildings. 

Call  conference  of  rural  and  city  supervisors ;  during  sum- 
mer, hold  two-  or  three-week  sessions  for  county  superin- 
tendents, paying  expenses  at  Ohio  state  university  under  the 
direction  of  its  superintendent  to  unify  work;  have  frequent 
conferences  with  public  school  men  where  in  the  last  four  years 
no  conference  has  been  called;  county  superintendents  should 
be  called  together  at  least  twice  a  year;  should  keep  in  closer 
touch  with  boards;  be  more  closely  affiliated  with  normal 
schools. 

State  department  should  have  policy  and  program  and 
work  to  it;  organize  teachers'  institutes  and  extend  them  to 
large  cities ;  have  closer  cooperation  with  university  extension ; 
work  out  progressive  theories  to  answer  the  demand  of  the 
reconstruction  period. 


342  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

9  —  How  can  schools  be  helped  more  by  the  legislature? 

Pass  fewer  laws  and  better  ones ;  make  it  possible  for 
state  department  to  do  things  in  a  large  way;  use  shall 
instead  of  so  many  mays;  clear  up  many  cloudy  points  so 
that  the  punitive  clause  in  attendance  law  will  be  clear;  work 
in  cooperation  with  the  Ohio  State  Teachers  Association ;  have 
a  more  tolerant  attitude  toward  members  of  the  teachers'  asso- 
ciation; consult  rural  school  men  when  framing  laws  govern- 
ing rural  schools ;  put  Ohio  schools  on  a  par  with  other  states ; 
establish  standards  and  give  someone  power  to  enforce  them. 

Abolish  local  boards  in  counties ;  make  the  county  board 
the  unit  and  give  the  county  boards  more  authority  in  fixing 
a  tax  levy  to  avoid  conflicting  issues;  "for  the  Lord's  sake 
divorce  us  from  budget  commissions" ;  give  county  boards 
authority  to  choose  textbooks ;  give  county  superintendents 
undisiputed  power  to  choose  teachers;  enable  counties  to  pay 
trained  teachers'  salaries  equal  to  those  in  cities ;  make  $1000 
the  minimum  salary  [$800  made  the  minimum  in  1920  for  any 
teacher,  $1,006  for  two  year  normal  graduates,  $1,200  foi 
four,  year  graduates]  ;  pay  half  of  rural  teachers'  salaries. 

Tax  trucks  enough  to  cover  the  damage  they  do  to  roads ; 
provide  for  county  truant  officers;  abandon  constant  examina- 
tion —  one  and  three  year  certificates  —  and  make  the  four- 
year  certificate  provisional  with  continued  renewal  if  work  is 
satisfactory ;  provide  houses  for  rural  teachers ;  pass  a  law  for 
condemning  property  for  teacherage  purposes  as  well  as  other 
school  purposes ;  revise  the  tax  system  to  give  schools  more 
revenue  [done  in  1920]  ;  put  no  limit  on  taxation  if  levied  by 
vote  of  people  in  community. 

Give  state  department  of  public  instruction  larger  powers 
over  all  state  schools,  and  industrial  schools  under  the  state 
department;  do  not  give  the  state  board  power  over  other 
branches  in  universities  than  teacher  training;  provide  for  new 
codification  of  the  school  law  and  bring  requirements  up  to 
date. 


SUGGESTIONS  BY  OHIO'S  STATE  FACULTIES  FOR  OHIO'S 
PUBLIC  EDUCATION 

In  answer  to  requests  from  the  joint  legislative  committee  on 
administrative  reorganization  faculty  members  of  state  supported  in- 
stitutions filled  out  several  hundred  postcards  which  called  for  brief 
suggestions  under  these  four  heads : 


ON   ADMINISTRATIVE   REORGANIZATION  343 

I  —  VVork  over-supported  or  unnecessary, 
2 —  Work  needed  but  not  yet  undertaken. 
3  —  Work  inadequately  supported, 

^  —  W'ork  not  properly  organized  (in  university,  state  department, 
teacher  training  school,  other  state  services). 

Many  individual  faculty  members  wrote  in  more  detail  than  the 
postcards  permitted  and  sent  valuable  information  and  constructive  sug- 
gestions. 

At  least  three  of  the  faculties  in  groups  considered  the  opportunity 
for  helping  Ohio  education,  appealed  to  individual  members  to  make 
suggestions  and  appointed  committees  to  formulate  proposals  for  dif- 
ferent faculty  groups.  For  example,  at  the  Ohio  state  university  the 
college  of  engineering  at  a  faculty  meeting  read  yoiir  committee's 
letter;  ordered  a  letter  thanking  the  committee  for  recognizing  the  cit- 
izenship of  the  university  facalty  and  for  giving  it  opportunity  to  make 
suggestions ;  wrote  asking  .your  field  agent  on  education  to  meet  the 
engineering  faculty;  conferred  at  length  with  the  field  agent  and  Gay- 
lord  C.  Cummin,  C.  E.,  your  field  agent  on  public  works  and  other 
engineering  problems;  asked  separate  committees  to  formulate  pro- 
posals; finally  after  compiling  these  proposals  sent  a  composite  state- 
ment of  great  value. 

Many  of  the  suggestions  from  faculties  bear  upon  the  efficiency 
with  which  organization  is  used  rather  than  upon  organization.  This 
material  is  of  great  value  to  Ohio  and  should  be  studied  by  educational 
administrators  and  should  be  used  as  clinical  material  for  the  training 
of  educational  investigators  and  managers. 

This  hurried  survey  by  individual  faculty  members  proves  the  great 
advantage  of  so  democratically  and  strategically  advertising  educational 
services  that  those  who  are  closest  to  the  educative  process  sball  be 
constantly  in  an  attitude  of  asking  what  the  larger  state  wide  meanings 
of  their  work  are  and  of  passing  on  suggestions  to  their  own  com- 
mittees, to  administrative  officers,  trustees  and  state  managers. 

The  following  summary  is  but  a  sample  of  the  information  and 
helpfuhiess  that  exist  in  all  faculties  and  that  would  immeasurably  pro- 
mote education  if  reservoired  and  let  out  through  the  mill  race  instead 
of  over  the  mill  dam. 

Art. 

1  —  College  of  fine  arts  needed ;  departments  of  architecture,  land- 

scape architecture,  music,  dramatics. 

2  —  A  state  art  commission  is  needed,  a  body  of  professional  men 

to  pass  upon  the  artistic  merits  of  public  buildings   and  to 
develop  public  good  taste. 


344  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

Agricultural  Experiment  Station. 

1  —  Needs  closer  connection  than   the   voluntary  co-ordination  of 

past  years. 

2  —  Should    send    specialists    to    conduct    experiments    for   public 

schools. 

3  —  Should  issue  bulletins  which  upper  grade  children  can  under- 

stand. 

4  —  Should   establish    an    experimental   plot   at   every   centralized 

rural  school. 

5  —  Should  organize  farmer's  meetings. 

6  —  Should  be  co-ordinated  with  the  university. 

7  —  Should  be  placed  under  the  university. 

Agricultural  College. 

1  —  Production  of  marketing  of  farm  products  needs  experiment 

and  education. 
2  —  Exact  cost  should   be   ascertained   of  producing  one   hundred 
pounds  of  milk  and  a  pound  of  butter  fat  or  a  can  of  con- 
densed milk. 

3  —  The  producing  capacity  of  cows  in  the  state  could  be  increased 

by  study. 

4  —  The  utiHzation  of  dairy  product  needs  to  be  taught. 

5  —  New  dairy  equipment  for  teaching  is  needed. 

6  —  Rotary  funds  would  make  the  dairy  school  less  expensive  to 

the  state. 

7  —  More  farm  machinery  is  needed  for  agricultural  engineering. 

Buildings  and  Repairs  Needed. 

I — Another  gymnasium  at  Miami. 

2  —  Repairs  and  maintenance  funds  and  more  space  for  Wilber- 

force. 

3  —  New  library  at  Ohio  state  university  and 
4 — English  building. 

5  —  Auditorium. 

6  —  Proper  housing  for  both  men  and  women  students. 

7  —  Women's  building. 

8  —  Testing  laboratory  for  civil  engineering. 

9  —  Greenhouse  space  for  plant  pathology. 

10 — Electric  equipment  for  charging  storage  batteries. 

11  — Buildings  for  tractor  testing. 

12  —  Completion  of  Brown  Hall. 

13  —  Building  to   house   all   language   departments   with   laboratory 

equipment. 


ON   ADMINISTRATIVE   REORGANIZATION  345 

14  — Botanic  gardens  should  be  developed  for  the  department  of 
plant  industry. 

15 —  At  Kent  additional  repairs  and  janitor  service. 

16 —  Give  one  department  of  public  works  authority  over  all  forms 
of  public  construction  in  place  of  so  many  commissions. 

Commerce  and  Journalism,  O.  S.  U. 

1  — Prominent  business  men,  journalists,  administrators  and  social 

workers  should  be  brought  to  lecture,  expenses  paid. 

2  — Extension  courses  should  be  offered,  lectures,  correspondence 

courses  and  regular  courses  of  study.  .    , 

3  — An  agent  should  be  maintained  to  answer  calls  from  news- 

papers and  to  make  surveys  of  their  business. 

4  — A  monthly  magazine  [now  published]  devoted  to  interests  of 

Ohio  press. 

5  — More  houses    and   higher   salaries    so   that   teachers   may   be 

retained. 

6 —  Universities  should  develop  greater  use  of  expert  knowledge 
of  state  and  private  activities.  The  same  relation  should  be 
established  between  state  schools  and  business  and  commercial 
pursuits,  that  now  exists  between  agrricultural  school  ana 
farm. 

7  — More  courses  should  be  offered  in  business  administration, 
accounting  and  trade. 

Conservation. 

1  _  A  s^ate  bureau  is  needed  to  conserve  streams,  forests,  fuels, 
game  and  people  and  to  plan  for  necessary  reservations. 

Economics  and  Sociology,  0.  S.  U. 

I  _The  enormous  ground  covered  by  the  department  of  economics 
and  sociology  with  over  3,000  registrants  should  be  divided 
into  a  number  of  departments,  as  in  other  large  universities. 

2- A  department  of  geography  is  needed  instead  of  a  division 
between  economics  and  geology. 

3 -Economic  geography  courses  should  be  given  for  the  conti- 
nents and  for  each  continent  separately. 

4  — The  entire  economic  department  and  library  facilities,  equip- 
ment and  instructors  is  inadequately  supported. 

c- Courses  should  be  given  where  elected  county  officials  may 
avail  themselves  of  instruction  relative  to  the  duties  of  the 
office  to  which  they  have  been  elected. 


346  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

Engineering  College,  O.  S.  U. 

1  —  Teachers  of  engineering  should  be  to  some  extent  producing 

engineers. 

2  —  Department  of  agricultural  engineering  and  university  archi- 

tect could  plan  all  state  barns  and  save  fees  for  the  state. 

3  —  The  experiment  station  founded  but  not  sufficiently  supi>orted 

is  important  to  state  industries. 

4  —  Extension  work  in  technical  training  is  needed. 

5  —  Graduate  school  needs  more  support  if  Ohio  is  to  train  experts 

for  using  the  engineering  experiment  station. 

Extension  Work. 

1  —  Short  extension  courses  for  rural  women  and  girls,  especially 

in  dietetics. 

2  —  Short  community  institutes  in  various  parts  of  the  state. 

3  —  Special  instruction  in  business  subjects  for  business  men  and 

4  —  Courses  in  state  industries. 

5  —  Zoology  and  entimology  for  farmers. 

6  — U.  S.  History. 

7  —  Prevention  of  disease   and  veterinary  sanitation  especially   in 

poultry. 

8  —  Engineering. 

9  -^  Marketing. 

10 — Civic  improvement. 

11  —  Night  schools  and  schools  for  adults,  by  the  state  in  O.  S.  U. 

12  —  By    and    for   county    superintendent    through    correspondence 

courses. 

Graduate  School  O.  S.  U. 

Is  inadaquately  supported  [many  answers]. 
Health. 

1  —  More  information  on  disease  should  be  disseminated. 

2  —  Social  science  departments  of  universities  and  state  health  de- 

partment should  be  co-ordinated. 

3  —  Health  and  medical  departments  should  be  centralized  and  an 

umpire   placed   over   all   classes   of   practitioners   as    in    New 
York. 

High  Schools. 

1  —  We  are  now  wasting  two  years  on  four-year  courses  while  two 

years  are  sufficienl. 

2  —  Every  high   school   student    should  have  a   year  of  physiology 

in   his   fourth   yonr  after  his  three  years  of  other  sciences  to 
include  laboratorx'  work  on  the  care  of  the  bodv. 


ON    ADMINISTRATIVE    REORGANIZATION  34/ 

3  —  Local  control  of  hi^i  schools  in  lowering  standard  of  require- 
ments. 

4 —  Deficient  in  spelling,  writing  and  U.  S.  history  when  entering 
Findlay  college. 

3  _  A  series  of  state  wide  tests  for  all  high  and  elementary  schools 
is  needed. 

6 Only  those  students  who  have  had  Latin  know  anything  about 

grammar.  Apparently  English  grammar  is  not  taught  in  the 
public  schools. 

Industrial  Arts,  0.  S.  U. 

I The  two  departments  of  industrial  arts  and  industrial  educa- 
tion now  parallel  one  another  and  should  be  one  department 
for  economy  and  efficiency. 

2  —  Expansion  of  domestic  engineering  is  needed  including  house- 
hold conveniences  of  all  kinds. 

3 —  Household  chemistry,  physics  and  bacteriology  and  applied 
design  are  all  neglected  now. 

^ Practice  houses  for  senior  girls  is  needed  in  home  economics 

and  for 

5  —  Cafeteria  practice. 

6— Additional  space  in  the  industrial  arts  is  needed. 

7  —  Manual  training  is  inadequately  supported. 

Junior  College. 

I  —  Junior  colleges  have  relieved  the  University  nf  Mis.souri  of 
2,ooo  Students. 

2 The  first  two  classes  at  O.  S.  U.  are  now  in  the  hands  of  in- 
competent instructors  due  to  lack  of  funds  and  to  large  enroll- 
ment—  a  junior  college  would  remedy  this  evil. 

3  _  The  first  two  years  of  university  work  should  be  pushed  back 
into  high  school;  add  two  years  to  high  school  courses. 

4— Permit  junior  college  only  if  collegiate  rather  than  high  school 
grade. 

5  _  Pass  a  law  debarring  from  O.  S.  U.  all  junior  college  stu- 
dents ;  let  other  Ohio  colleges  take  care  of  them ;  spend  funds 
thus  released  upon  graduate  work. 

Languages. 

1  — Latin  and   Greek   organizations    (at   O.    U.)    not   justified  by 

the  present  number  of  students. 

2  —  All  of  the  languages  may  now  be  taken  either  in  high  school 

or   in   college. 

3  _  Work  in  English  (O.  S.  U.)  is  inadequately  supported. 


348  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

4  —  Russian  and   Slavic  languages  should  be  taught   for  govern- 

mental service. 

5  —  There  should  be  one  year  of  special  training  in  a  French  or 

German  house  after  completing  the  college  course. 

6  —  Portuguese  should  be  taught  for  commerce  with  Brazil. 

7  —  A  state  specialist  should  make  scientific  measurements  espe- 

cially of  modern  languages. 

Libraries. 

1  —  O.  S.  U.  should  have  a  library  training  school. 

2  —  "$1,500  a  year  for  a  normal  school  library  is  a  crime." 

Medical  Colleges,  O.  S.  U. 

1  —  Consolidate. 

2  —  Do  away  with  separate  homeopathic  college. 

3  —  Put  into  one  college  medicine,  homeopathic  medicine,  dentistry, 

pharmacy. 

Miami. 

I  —  A   repository    is    needetl    here    for    Americanization    materials 
.    especially  for  the  work  at    Hamilton  and  Middletown  normal 
schools. 

Music. 

I  —  A  college  is  needed  at  O.  S.  U. 

Normal  Schools. 

1  —  County  normal  results  seem  scarcely  worth  while   [judgment 

evidently  not  based  on  investigation]. 

2  —  Training  for  teaching  feeble-minded  is  needed. 

3  —  Kindergarten  methods  should  be  taught. 

4  —  Vocational  guidance  is  needed. 

5  —  State  work  is  needed  for  music  and  communistic  singing. 

6 — Systematic  study  needed  of  correct  speech  and  effective  speak- 
ing which  are  marked  assets  for  teachers. 

7  —  Training  is  needed  for  physical  education  teaching. 

8 — Commercial  teachers  should  be  trained. 

9 — Information   bureaus  sliouid   lie   establisliod   for  use   of   voung 

teachers. 
[O — Normals  should  prepare  for  junior  high. 

1 1  —  More  specialization  is  needed  in  training  of  teachers. 

12  —  Methods  are  improperly  taught  before  principles,  practice  be- 

fore methods,  observations  before  methods  or  principles, 
methods  before  psychology  |a  judgment  not  concurred  in  by 
other  Ohio  educators]. 


ON    ADMINISTRATIVE    REORGANIZATION  349 

13  —  Normal  training  is  too  largely  on  a  practical  basis.     There  is 

need  for  more  of  the  finer  things  that  make  for  character. 

14  —  Train  teachers  to  direct  centralized  schools,  high  and  elemen- 

tary. 

15  —  Teachers  should  be  licensed  in  one  subject  only. 

16  —  The  teacher  in  first  class  high  schools  should  be  certified  for 

not  more  than  two  subjects,  and 

17  —  For  second  class  schools  in  not  over  three  subjects. 

18  —  Two  thirds  of  the  normal  course  should  be  content  and  one 

third  method. 

19  —  Only  one  school  should  specialize  in  music  [and  inferentially 

in  other  subjects]. 

20  —  Students    should    receive    support    while    in    training,    as    in 

Akron,  which  pays  $50.00  and  selects  the  best  applicants. 

21  —  Normals  should  have  research  departments. 

22  —  Young   teachers    should    be    followed   up   by    normal    faculty 

members  especially  assigned  to  this  work. 

23  —  Faculties  should  bring  influence  to  bear  to  increase  attendance. 

24  —  State   law   should   guarantee   practice   facilities     for    normals. 

[See  report  on  Teacher  Training  for  Bowling  Green  arrange- 
ment] . 

25  —  Towns   supporting  normal   schools   should   have   state   subsidy 

and 

26  —  Their  schools  should  be  under  the  control  of  normal  school. 

27  —  There  should  be  but  one  board  for  all  normal  schools  [prac- 

tically impossible  because  Miami  and  Ohio  normals  are  a  part 
of  larger  institutions]. 

2S  —  There  are  too  many  normal  schools  [believed  to  be  incorrect]. 

29  —  Normal  faculties  should  have  time  for  research. 

30 — Organize  normal  faculty  on  business  like  basis  into  commit- 
tees: If  cut  from  interests  created  by  promoting  the  general 
welfare  the  faculty  member's  powers  are  sure  to  atrophy. 

Ohio  State  University. 

1  —  Much  work  in  the  business  manager's  office  compelled  by  law 

is  unnecessary. 

2  —  Too  much  goes  into  the  general  equipment,  janitors'  supplies, 

carpets,  desks,  chairs,  not  enough  into  scientific  equipment  of 
the  general  department  of  the  arts  college. 

3  —  Collectively  there  is  excessive  expenditure  for  administration. 

4  —  We  should  not  reach  into  additional  fields  but  adequately  sus- 

tain what  we  have. 

5  —  A  thoroughly  equipped  graduate  school  is  needed. 

6  —  A  bureau  of  social  research  is  needed  to  render  expert  service 

to  the  state. 


350  RKPOKT  OF   jOfXT   I.KGISI.ATIVE    CO.Af  M  ITTKK 

7  —  The  law  school  needs  a  moot  court,  liljrarian,  summer  school 

and  publication  fund. 

8  —  Teaching  schedule  is  too  heavy. 

9  —  Office  space  is  inadequate. 

lo — Clerical  assistance  is  needed  by  the  faculty. 

1 1  —  Co-ordination  is  inadequate  of  education  service  with  admin- 

istrative departments. 

12  —  Make  classes  larger  and  fewer  in  number. 

13  —  Use  student  assistants  for  grading  papers  and  thus  permit  of 

better  teachers  and  research  work. 

14  —  Faculties   should   have  effective  voice   in   determining   policies 

and  the  budget. 

15  —  The  purchasing  system  should  be  simplified,  is  now  too  compli- 

cated and  consumes  too  much  time. 
16 — Legislative  committees  give  too  little  time  to  iiniversity  affairs 
do  not  read  diagrams  of  university  growth. 

17  —  Restore  to  colleges  the  right  to  make  their  own  entrance  re- 

quirements   [generally  considered   undennx-ratic   in   state   sup- 
port and  harmful  to  lower  schools]. 

18  —  Observation  indicates  that  much  work   in  the  higli  schools  is 

repeated  in  college,  much  work  in  teacher  training  schools 
repeats  high  school  and  academic  work.  High  schools  are  not 
compelled  to  fulfill  the  standards  set  by  the  state  superintend- 
ent's office. 
19 — All  colleges  should  be  organized  to  help  develop  O.  S.  U.  into 
an  educational  center  of  higher  rank  with  a  board  to  consist 
of  three  members  from  municipal  colleges,  five  from  state  sup- 
ported institutions  and  seven  from  all  other  colleges.  [From 
Miami  professor.     See  section  on  state  educational  council]. 

Physical  Education. 

1  —  Public  health  inspection  is  needed  in  all  schools. 

2  —  Physical  education  department  should  be  a  health  dejxirtment 

with   health   supervision   and    inspection,   credits    for   required 
work  done  and  adequate  equipment  and  housing. 

3  —  Every  normal  student  should  have  a  physical  examination  as 

should  eve'ry  child   in  the  training  school .  which   requires   in- 
struments, showers,  dressing  room. 

4  —  Physical  education   should   be   required   work,  carrying  credit 

for  three  years  of  college,  then  elective  for  the  fourth  year. 

5  —  C).  S.  U.  needs  a  larger  gvmnasium.    ux>~>  lockers  and  recre- 

ation and  athletic  fields. 


ON    AUMINISTRATIVK    REORGANIZATION  35 1 

Research  Work. 

1  —  University  teachers  should  have  time  for  research  work  and 

opportunity  for  publishing  the  results. 

2  —  The  normal  faculties  should  do  research  work. 

3 —  Provision  should  be  made  to  relieve  researchers  of  part  of  their 

routine  duties. 
4  —  O.  S.  U.  needs  a  building  for  research. 
^  —  Research  in  language  should  be  stressed. 

6  —  Research  departments  in  business  and  social  work  should  be 

established  at  O.  S.  U.  with  proper  equipment  and  housing. 

7  —  Engineering  teachers  should  have  time  for  investigation   and 

development  in  the  uncommercialized  fields  of  pure  science. 
8 — .Research  work  for  legislative  committees   should  be   do^ne  by 

O.  S.  U.  departments. 
9  —  Research  is  needed  in  pathology  and 

10  —  Farm  machinery, 

1 1  —  Cost  of  milk  production, 

12  —  Dairy  by-products  and  rural  marketing  problems. 

J  3  —  Medical   institute   is   needed   which   will   be   independent   but 

affiliated  with  first-class  Iiospitals  and  medical  colleges. 
14 — Let  the  gaging  station  be  on  the  Olentangy  River. 

15  —  Experimental  work  is  needed  on  fishes  and  pond  culture. 

16  —  A  bureau  of  cooperative  research  should  be  maintained  by  the 

colleges  jointly. 

Rural  Schools. 

1  —  Universities  should  send  out  speakers,  slides,  exhibits. 

2  —  There   is   need    for   a   greater   appreciation    and    practice    of 

things  organized  and  beautiful  about  the   farm,   home,   rural 
school,  churches,  roads,  parks. 

3  —  There  should  be  physical  education  and  public  health  work  in 

rural  schools. 

4  • —  Consolidation  should  be  pursued. 

5  —  Dental,  surgical  and  medical  clinics  are  needed,  school  nurses 

and  medical  and  mental  inspection. 

6  —  County  school  district  should  be  the  rural  school  unit  for  tax- 

ation and  administration,  thus  saving  almost  $500,000  a  year. 

7  —  All  local  certificate  issuing  and  certificate  reviewing  authori- 

ties should  be  discounted  after  1025. 

Salaries. 

i_  Students  in  training  should  be  paid  at  normal  schools  as  our 
national  government  ])ays  army  and  navy  students  so  thai 
both  number  and  quality  may  be  increased. 


352  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

2  —  It  is  ridiculous  that  Ohio  is  now  paying  more  for  supervising 

the  feeble-minded  (S7500)  than  for  the  state  superintendent  of 
schools   ($4000). 

3  —  The  state  superintendent  should  be  paid  $10,000  to  $15,000. 

4 —  Incidental  fees  should  be  used  to  increase  salaries  of  professors 
[1920  law  made  this  possible]. 

5  —  Critic  teachers  cannot  be  obtained  so  long  as  cities  are  paying 

elementary  teachers  more  than  normal  college  critic  teachers 
receive. 

6  —  The  state  should  be  the  unit  for  a  tuition  fund  and  pay  all 

public  school  districts  so  that  poor  districts  may  be  well  taught. 

7  —  Highly  trained  specialists  in  chemicals  and  soils  are  not  pos- 

sible within  present  salaries. 
8 — Summer  session  teachers  must  have  larger  salaries. 

School  Boards,  Local. 

1  —  County  boards   should  be   elected  or  school   electors,   should 

elect  county  superintendent,  district  superintendents  and  as- 
sistant district  superintendents  and  all  teachers  in  district.  All 
districts  within  the  county  ^hould  be  abolished. 

2  —  The  county  superintendent  should  be  nominated  by  the  state 

superintendent  of  public  instruction. 

Social  Service. 

1  —  Social  service  field  work  should  be  undertaken  and 

2  —  Social  science  departments  should  be  called  upon  for  expert 

advice. 

3  —  More  community  service  work  is  needed. 

4  —  Training  for  social  service  needs  more  support. 

State  Departtnent  of  Public  Instruction. 

1  —  Amend  Ohio  constitution  to  provide  for  state  board  of  edu- 

cation. 

2  —  A  complete  reorganization  is  proposed ;  5-7  members,  one  out 

each  year,  appoint  own  officers  from  outside  the  state  if  de- 
sired with  fitness  the  only  qualification. 

Require  reports  from  all  state  educational  institutions  and 
from  all  public  schools;  classify  schools,  public  and  private; 
control  the  certification  of  teachers;  control  the  conferring  of 
degrees  and  diplomas ;  supervise  educational  departments  of 
penal  and  reformatory  institutions ;  supervise  schools  for  the 
deaf,  dumb,  blind  and  feeble-minded ;  control  all  school  or 
classes  for  training  teachers ;  prepare  an  educational  budget ; 
recommend  new  regulations  or  amendments ;  give  needs  to  be 
covered   and-  salary  changes  needed.      [See  eleven  provisions 


ON   ADMINISTRATIVE    REORGANIZATION  353 

proposed  in  letter  from  Professor  A.  R.  Mead,  of  Ohio  Wes- 

leyan.] 
3  —  More  authority  over  school  affairs  is  needed. 
4 — State   board    should    control    all    educational    institutions    and 

libraries. 

5  —  All  educational  work  should  be  correlated  under  one  authority 

and  vested  in  a  commissioner. 

6  —  Text  books  should  be  selected  by  committees  appointed  by  the 

state  board  of  faculty  members  from  higher  institutions  of 
learning. 

7  —  High   spot    facts   should  be   circulated    from   Ohio   and    from 

other  states  for  the  use  of  wide-awake  teachers,  elementary 
and  high  school,  principals  and  superintendents,  city,  county 
and  district  superintendents,  educational  workers  in  other 
states,  teachers  and  teacher  training  institutions  and  trustees. 

8  —  Present  facilities  are  inadequate  ;  the  office  under-manned  ;  law 

is  too  vague;  space  is  lacking. 

9  —  Choose  an  able  man  —  he  will  do  the  rest. 

Stale  Superintendcni. 

1  —  More  facts  are  needed  and 

2  —  More  executive  power  is  needed. 

3  —  Someone  should  be  employed  able  to  plan  and  execute  a  defi- 

nite program  or  system. 

4  —  The  state  superintendent  should  be  given   definite  powers  to 

determine  the  qualifications  for  teachers. 

5  —  The  high  schools  are  not  compelled  to  fulfill  the  standards  set 

by  the  state  superintendent. 

Sxirveys  are  needed,  of 

1  —  Fisheries  to  yield  the  largest  return   from  natural  wealth  of 

rivers. 

2  —  All  state  work  and  highway  inspection. 

3  —  All  streams  in  co-operation  with  U.  S.  geological  survey. 

4  —  $15,000  is  needed  to  complete  the  publication  of  results  of  state 

survey  containing  valuable  information  now  withheld  from  the 
public. 

5  - —  Biological  survey  has  received  no  funds  for  two  years. 

Taxation  for  Education. 

1  —  A  fixed  millage  is  needed  for  each  class  of  school. 

2  —  There  should  be  a  special  levy  possible  for  school  use  outside 

of  the  regular  levy.     [Now  possible.] 

3  —  A  commission  should  be  appointed  from  colleges  to  give  pub- 

licity to  the  needs  of  universities  and  colleges. 
23 


354  REPORT  OF  JOINT  LEGISLATIVE    COMMITTEE 

4  —  Citizens  of  the  community  must  be  educated  along  lines  of 

administrative  school  work  if  they  are  to  avoid  the  hostility 
toward  progressive  schools. 

5  —  More   discretion   ought   to   be   allowed   in   the   expenditure   of 

money  appropriated  for  schools. 

6  —  Closer  relation  should  exist  between  teachers  of  taxation  and 

state  taxation  authorities.     [Social  science  group,  Miami.] 
Teachers. 

1  —  Salaries  should  l)c  paid  to  those  in  training  in  order  to  increase 

recruits. 

2  —  Four  years  of  training  should  be  the  minimum. 

3  —  No  one  under  2i  should  l)e  permitted  to  teach. 

4  —  Clerical  help  in  teacher  training  school  is  inadequate. 

5  —  The  state  should  provide  homes  for  the  faculty.     Rent  would 

make  this  a  profitable  investment. 

6  —  Our  teacher  training  courses  at  O.  S.  U.  in  manual  training 

should  be  recognized  by  the   state   board   under   the   Smith- 
Hughes  bill. 

Vocational  Work. 

I  —  Vocational  councils  are  needed  at  universities. 

Wilherforce. 

Needs  facilities  for  brick-laying,  plastering,  cement  work,  pattern 
making  and  foundry;  also  expanded  agricultural  course,  including 
landscape  gardening;  also  vocational  work  for  girls,  confectioners, 
bakers,  courses;  dress  and  hat  designing. 

Zoology. 

1  —  O.  S.  U.  library  is  very  short  in  zoological  literature,  which 

checks  advanced  research.     "Of  my  salary  of  $1,500  I  shall 
have  to  spend  $100  for  books." 

2  —  It  is  too  heavy  a  tax  on  individual  teachers  to  have  to  buy  so 

much  scientific  literature  simply  to  keep  their  work  up  to  date. 

3  —  Laboratory  supplies  are  inadequate. 

4  —  A  scientific  man  for  state  work  is  needed. 

5  —  More  support  is  needed. 

The  foregoing  suggestions  are  given  almost  verbatim.  They  are  not 
a  substitute  for  "best  sellers",  but  they  show  socially  minded  constructive 
thinking  by  Ohio  faculties. 

It  is  recommended  that  your  committee  have  enough  copies  printed 
of  this  section  to  submit  to  the  university  and  normal  college  faculties, 
together  with  the  next  section  from  city  and  county  superintendents,  so 
that  it  will  be  possible  to  secure  study  and  still  further  suggestions  in 
time  to  affect  legislative  proposals  next  winter. 

It  is  further  recommended  that  these  suggestions  be  called  to  the 


ON    ADMINISTRATIVE    REORGANIZATION  355 

especial  attention  of  trustees,  presidents  and  deans  for  help  in  planning 
their  next  year's  work. 

The  first  two  letters  that  follow  will  take  up  frankly  and  definitely 
the  problems  presented  by  the  large  number  of  elementary  courses  at 
Ohio  state  university.  They  are  suggested  for  reprinting  in  full  for 
the  concrete  help  they  contain  and  for  the  indication  they  give  of  the 
co-operation  received  by  your  committee  from  university  faculties.  With 
them  for  the  same  purpose  are  included  typical  letters*  from  faculty 
departments,  the  engineering  faculty  at  O.  S.  U.  and  two  groups  at 
Miami  :* 

Dean  J.  V.  Denny,  O.  S.  U. 

Replying  to  your  request  for  suggestions  as  to  work  not  prop- 
erly organized  in  our  educational  system,  permit  me  to  make  one 
suggestion.  The  high  schools  are  now  offering  such  a  great  variety 
of  work  that  there  is  hardly  a  study  with  the  single  exception  of 
English  that  is  now^  pursued  by  all.  The  State  law  compels  the 
higher  institutions  of  learning  to  receive  unconditionally  into  their 
freshman  courses  the  graduates  of  first  grade  high  schools.  This 
requirement  practically  compels  the  colleges  to  offer  elementary 
work  in  large  quantities  which  should  have  been  undertaken  in  the 
high  school.  For  example,  all  of  the  languages  may  be  begun  either 
in  high  school  or  in  college.  The  same  is  true  of  every  science.  The 
same  is  true  of  history.  An  investigation  would  show  that  fully  one-half 
of  the  money  expended  for  teaching  in  the  higher  institutions  is  expended 
on  studies  now  ofifered  in  high  school. 

One  remedy  for  this  condition  of  affairs  would  be  to  restore  to  the 
colleges  the  right  to  make  their  own  entrance  requirements.  This  right 
was  assumed  by  the  State  Legislature  a  few  years  ago. 

Another  remedy,  and  perhaps  a  better  one,  would  be  a  new  law 
permitting  Jocal  school  boards  to  add  a  fifth  and  sixth  year  to  the  cur- 
riculum of  the  local  high  schools.  This  would  enable  the  high  schools  to 
retain  some  of  their  pupils  at  home  for  a  year  or  two  longer  before  send- 
ing them  away  to  the  over-crowded  and  often  poorly  taught  classes  in 
the  higher  institutions.  The  state  Superintendent's  office  should  be 
charged  with  the  duty  of  mapping  out  several  courses  for  sixth  and  fifth 
year  high  school.  Already  there  is  plenty  of  work  given  in  the  high 
schools  of  the  cities  to  furnish  a  student  who  is  going  to  college  with  a 
preparation  sufficient  to  admit  him  to  the  sophomore  year.  The  expendi- 
ture of  a  little  more  money  would  enable  the  high  school  to  prepare  for 
admission  to  the  junior  year  in  college.  College  freshman  Chemistry, 
Physics,  Botany,  Zoology,  the  languages  are  all  now  freely  offered  in  the 
high  schools.  For  admission  to  the  junior  year  in  college  it  would  only 
be  necessary  to  add  for  prospective  engineers  another  course  in  English 
and  in  Physics,  another  year  in  mathematics  and  further  work  in  Me- 


In  these  letters  punctuation  and  capitalization  are  not  changed. 


356  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

chanical  Drawing.  For  those  seeking  a  liberal  course  these  additions 
would  serve  very  well  if  supplemented  by  one  extra  course  in  American 
History  and  one  extra  course  in  the  Principles  of  Economics.  Probably, 
it  would  be  a  good  state  policy  to  offer  a  premium  to  such  schools  as 
should  be  able  to  undertake  college  work,  by  special  grant  from  the  State 
Treasury  to  the  local  schools.  This  grant  should  be  sufficient  to  support 
the  additional  teaching  force  necessary.  It  should  be  regulated  according 
to  the  number  of  students  remaining  for  the  fifth  year  of  the  high  school 
and  to  the  opportunities  offered. 

There  is  little  hope  of  any  little  relationship  between  the  state  uni- 
versities and  the  private  colleges.  Voluntary  affiliations  have  been  tried 
for  years  in  this  state  but  for  the  most  part  have  come  to  nothing.  The 
small  colleges  are  fulfilling  a  very  useful  function  for  the  State  .but  their 
charters  are  usually  so  strict  that  it  is  impossible  for  these  colleges  to 
adjust  themselves  to  modern  requirements.  Our  hope  lies  in  the  estab- 
lishm_ent  of  a  more  economical  relationship  between  the  universities  and 
the  high  schools  of  various  kinds. 

Prof.  M.  B.  Hzunmond,  Economics,  O.  S.  U. 

As  a  member  of  the  faculty  of  Ohio  State  University  I  accept  your 
invitation  to  make  suggestions  in  regard  to  improvements  which  might 
well  be  made  to  improve  state  supported  education.  In  doing  so,  I 
limit  myself  to  matters  connected  with  the  Ohio  State  University,  and 
while  there  are  many  matters  which  might  be  suggested  in  regard  thereto, 
I  limit  myself  to  the  one  which  seems  to  me  the  most  important  a't  the 
present  time. 

The  growing  popularity  of  a  college  education  and  the  cheapness  of 
that  afforded  by  state  universities  has  led  within  the  last  decade  to  a 
growth  in  the  attendance  at  such  institutions  out  of  all  proportion  to 
the  appropriations  necessary  to  do  the  work  adequately.  Some  of  the 
state  universities  have  succeeded  better  than  the  Ohio  State  University 
in  impressing  upon  the  state  legislature  the  importance  of  their  needs, 
but  i-n  practically  all  of  them  the  condition  prevails  which  I  am  about  to 
describe. 

The  great  pressure  in  numbers  is,  naturally,  in  the  lower  classes 
in  the  colleges  proper,  i.  e.  in  our  University  in  the  colleges  of  Arts, 
Agriculture,  Engineering  and  Education.  From  the  very  nature  of 
things  most  of  the  students  in  the  first  two  years  of  their  work  in 
all  these  colleges  are  taking  work  in  the  same  departments,  either 
because  the  work  is  required,  or  because  it  is  deemed  necessary  for 
the  more  advanced  and  technical  courses  which  come  in  the  later 
years  of  the  college  course.  The  result  is  that  the  student  in  these 
courses  can  no  longer  select  his  teachers  in  these  courses.  All  these 
departments  have  to  give  their  introductory  courses  in  sections  and 
most  of  them  have  many   sections.     No  department   has   sufficient 


ON  ADMINISTRATIVE   REORGANIZATION  357 

funds  to  hire  well-trained  and  experienced  teachers  for  this  work. 
The  work  of  teaching-  these  courses  is  fully  as  important  and  diffi- 
cult as  teaching  the  more  advanced  courses  and,  contrary  to  popular 
belief,  is  recognized  as  such  by  the  older  and  experienced  men  in  the 
department.  It  is  obvious,  however  that  these  men  cannot  give  their 
time  wholly  to  these  introductory  courses  and  turn  over  the  ad- 
vanced courses  to  younger  and  less  experienced  men.  The  older 
men  usually  give  one  Section  of  the  elementary  course  and  devote 
the  remainder  of  their  time  to  the  advanced  courses.  The  result  is 
that  these  introductory  courses  fall,  for  the  most  part,  into  the  hands 
of  men  who  have  not  yet  completed  their  graduate  work  and  who 
have  had  little  or  no  experience  in  teaching.  The  lack  of  funds  com- 
pel this.  These  men  are  lead  by  the-  prospect  of  partially  earntng 
their  support  while  pursuing  graduate  studies  to  take  up  this  teach- 
ing, incidentally.  I  believe  that  it  will  repay  your  committee  to  in- 
vestigate the  extent  to  which  the  teaching  in  the  first  two  years  at 
the  University  is  done  by  men  who  regard  their  teaching  as  incidental 
to  their  other  work  and  who  cannot  be  expected  to  take  the  interest 
in  their  teaching  which- is  taken  by  fully-equipped  and  fully-paid  men 
who  have  entered  upon  college  teaching  as  a  profession. 

It  might  seem  that  the  remedy  was  to  supply  the  University  with 
funds  sufficient  to  employ  well-paid  men  for  this  work.  Unfortu- 
nately, I  do  not  believe  the  Legislature  is  sufficienttly  impressed  with 
the  importance  of  the  subject  to  do  this.  Most  men  assume  that  the 
University  is  furnishing  good  instruction.  They  do  not  know  any- 
thing to  the  contrary  and  conclude  that  a  big  University  must  be 
competent  to  give  high  grade  instruction. 

Now,  as  a  matter  of  fact  the  larger  high  schools  are  paying 
much  higher  salaries  to  their  teachers  than  are  being  paid  by  the 
University  for  the  men  who  handle  these  introductory  courses. 
Furthermore,  the  work  done  in  these  courses  does  not  require  ex- 
pensive laboratory  or  library  equipment.  The  laboratories  must  be 
big  enough  to  handle  the  students  but  the  expensive  and  elaborate 
equipment  is  needed  only  for  the  students  who  are  specializing  in  the 
advanced  courses.  What  is  necessary  is  well  trained  teachers  who  are 
sufficiently  well  paid  to  take  up  this  work.  The  teaching  of  the  intro- 
ductory courses  in  English,  modern  languages,  history,  economics,  mathe- 
matics, the  biological  and  physical  sciences  which  now  fill  the  time  of  the 
students  during  the  first  two  years  of  their  college  courses  can  well  be 
done  in  a  Junior  College,  connected  with  any  of  the  large  and  well- 
equipped  high  schools.  They  cannot  do  it,  of  course,  without  larger 
funds  than  are  now  at  their  disposal,  but  if  the  state  would  create  certain 
educational  districts  and  subsidize  on  an  agreed  basis  the  strong  school 
in  that  district  which  would  undertake  to  establish  a  Junior  College  and 
admit  to  its  privilege  all  students  from  that  district  who  had  the  neces- 


358  REPORT  OF  JOINT   LEGISLATIVE   COMMITTEE 

sary  preparation,  it  would  serve  the  needs  of  those  people  desiring  to 
send  their  children  to  college  which  would  be  far  cheaper  than  at  present 
— when  the  expenses  of  sending  young  men  and  women  to  college  away 
from  home  is  included — besides  affording  better  instruction  than  the 
majority  of  freshmen  and  sophomores  in  the  University  are  now  receiv- 
ing. It  might  also  be  a  good  plan  to  establish  junior  colleges  in  con- 
nection with  the  State  Normal  Schools.  The  Ohio  State  University 
should  then  be  expected  to  limit  very  greatly  the  number  of  students  in 
its  own  Junior  College.  When  the  system  was  well  established,  it  might 
even. be  possible  to  dispense  with  the  Junior  College  at  the  University. 
The  great  importance  attached  to  education  in  a  democracy  and  the 
impossibility  of  adequately  meeting  the  need  in  many  communities  is 
causing  education  to  be  registered  more  and  more  as  the  concern  of  the 
larger  political  units.  It  is  for  this  reason  that  the  State  might  well 
prepare  to  finance  in  part  the  higher  education  even  when  the  adminis- 
tration is  in  the  hands  of  the  local  political  units.  The  people  will  more 
willingly  support  the  schools  when  they  see  that  the  money  is  being  spent 
in  their  own  community  and  they  have  the  opportunity  to  watch  the 
results  of  the  expenditure.  I  am  not  undertaking  to  set  forth  the  details 
of  such  a  system.  I  am  chiefly  concerned  with  pointing  out  the  fact, 
which  I  am  sure  is  not  generally  appreciated,  that  the  instruction  now 
being  given  to  the  majority  of  students  during  their  first  two  years  in  the 
State  University  is  of  an  inferior  sort  judged  by  university  standards, 
and  is  steadily  deteriorating,  and  am  trying  to  point  out  that  the  work 
being  done  in  these  two  years  of  college  can  well  be  handled  in  Junior 
Colleges  in  our  large  cities,  connected  with  the  High  Schools,  and  in 
certain  other  communities  in  connection  with  the  Normal  Schools. 

College  of  Engineering  —  O.  S.  U. 

The  members  of  the  faculty  of  the  College  of  Engineering  of  The 
Ohio  State  University  wish  to  thank  you  for  the  courtesy  shown  to  its 
individual  members  in  asking  then>  for  their  "personal  help"  in  your 
work  and  to  assure  you  of  our  appreciation  of  the  privileges  offered  us 
to  be  of  service  to  our  State  in  ways  in  which  we  are  considered  to  be 
competent,  each  in  his  special  field  of  knowledge. 

After  due  consideration  and  some  discussion,  we  respectfully  offer 
the  following  suggestions  under  the  headings  listed  on  the  return  post 
card  sent  out  by  your  committee. 

(i)     Work  Not  Needed  or  Over-Supported. 

(a)     Duplication  of  Courses. 

There  is  some  unnecessary  duplication  of  courses  of  study 
of  a  technical  and  special  nature  in  state  supported  institu- 
tions. 


on  administrative  reorganization  359 

(2)     Work  Needed  But  Not  Yet  Undertaken. 

(a)  Educational  Extension  Work. 

Educational  extension  work  is  needed  under  the  direction  o-f 
the  College  of  Engineering  of  the  State  University  in  the 
form  of  short  technical  courses  of  study  for  the  mechanics, 
miners,  clay  and  steel  workers,  railroad  men,  road  superin- 
tendents, telephone  employees  and  others,  somewhat  similar 
to  that  which  the  state  and  nation  are  doing  for  the  farmers. 
This  is  already  authorized  by  law.     (103  O.  L.  662-663.) 

(b)  Junior  Colleges. 

The  establishment  of  Junior  Colleges  is  recommended  in  those 
cities  not  now  adequately  provided  with  educational  facilities 
corresponding  to  the  elementary  instruction  given  in  the  first 
two  years  of  the  college  curricula,  using  the  local  high-chool 
buildings  and  equipments,  with  the  co-operation  of  the  City 
Boards  of  Education,  and  under  the  supervision  of  the  State 
University. 

3.     Work  Inadequately  Supported. 

(a)  E.vpenses,  Salaries  and  Equipments. 

The  expenses,  salaries  and  equipments  of  each  of  the  State 
supported  institutions  should  be  supported  by  some  adequate 
and  regular  means,  such  as  a  mill-tax  levy. 

(b)  Building  Programs. 

The  building  programs,  including  equipment  of  new  buildings 
of  the  State  University,  of  the  Board  of  Adiminstration,  and 
of  the  other  similar  units  of  the  State  which  need  new  build- 
ings each  year  to  care  for  their  regular  growths,  s'hould  be 
supported  by  adequate  and  regular  means,  such  as  a  mill-tax 
levy. 

(c)  Present  Emergency. 

There  should  be  immediate  provisions  made  for  the  care  of 
the  increases  of  attendance  at  the  State  University  in  1919 
and  1920.  The  law  of  the  state  does  not  permit  the  Uni- 
versity to  limit  the  attendance. 

(d)  University  Library. 

The  State  University  Library  needs  additional  support  and,  in 
particular,  provision  for  engineering  books  and  periodicals. 

(e)  Engineering  Experiment  Station. 

The  Engineering  Experiment  Station  at  the  State  University 
for  the  benefit  of  the  various  departments,  boards  and  com- 


360  REPORT  OF  JOINT  LEGISLATIVE    COMMITTEE 

missions  of  the  state  government,  and  for  corporations  and 
and  citizens,  has  been  authorized  by  law.  (103  O.  L.  662- 
663). 

(f)     Existing  Technical  Laboratories. 

Certain  Technical  Laboratories  and  their  equipments  at  the 
State  University,  such  as  cement,  telephone,  materials,  and 
industrial  c'hemistry,  need  support  for  proper  operation  to 
make  present  investment  efficient  for  the  youth  and  industries 
of  the  State. 

4.     Work  Not  Properly  Organized. 

(a)  State's  'Engineering  Activities. 

The  State's  Engineering  and  Constructional  Activities  should 
be  correlated  under  a  new  Department  of  Public  Works,  with 
subdivisions  known  as  Bureaus  of  Highways,  Canals,  Rail- 
roads, Buildings,  Parks,  Art  Commission,  Reservoirs,  Con- 
servation of  Streams,  Fuels,  etc. 

(b)  State  Board  of  Education. 

The  educational  activities  of  the  state  might  well  be  organized 
under  a  system  similar  to  that  used  in  New  York  State. 

(c)  Civil  Service  as  applied  to  Educational  Institutions. 

The  civil  service  as  at  present  applied  to  the  clerical,  steno- 
graphic and  artisan  forces  of  the  educational  institutions  of 
the  state,  is  not  conducive  of  efficiency. 

We  take  the  liberty  of  adding  the  suggestion  that  there  should  be 
greater  cooperation  at  mutual  expense  for  equipment  and  labor  between 
the  departments  and  laboratories  of  the  State  University  and  the  various 
Departments,  Boards,  Commissions,  and  officials  of  the  State  for  the 
benefit  of  all  concerned. 

We  shall  be  pleased  to  discuss  any  or  all  of  these  suggestions  with 
you  and  the  other  members  of  the  committee  whenever  it  is  agreeable 
for  you  to  have  us  do  so. 

Again  thanking  you  for  the  opportunity  to  he  of  service  to  our 
state,  we  remain 

Very  respectfully, 

THE  COLLEGE  OF  ENGINEERING. 
THE    OHIO    STATE    UNIVERSITY. 

E.    T,    CODDINGTON, 

Acting  Dean 

ROBKKT    MkIKLJOIIN, 

Secretary. 


ON   ADMINISTRATIVE   REORGANIZATION  361 

English  and  Public  Speaking  Division  —  Miami. 

In  some  adequate  way  bring  before  the  people  of  Ohio  the  financial 
demands  that  will  be  made  upon  them  in  the  natural  development  of  edu- 
cation and  educational  institutions  during  the  next  ten  years.  The  popu- 
lation is  increasing,  the  percentage  of  young  people  entering  and  com- 
pleting high  school  courses  is  growing  by  leaps  and  bounds,  and  the  per- 
centage of  these  graduates  entering  the  state  universities  is  more  than 
keeping  pace  with  this  increase.  Salaries  of  instructors  must  be  made 
commensurate  with  those  of  trained  and  experienced  men  in  other  call- 
ings or  this  higher  education  will  soon  lose  public  respect  and  become 
farcical.  The  public  certainly  appears  to  want  it  and  desires  it  to  im- 
prove in  excellence  rather  than  to  deteriorate.  But  the  public  in  Ohio 
does  not  see  at  all  the  immense  outlay  that  will  be  involved  and  is  not 
educated  at  present  to  a  willingness  to  make  this  outlay.  A  commission 
from  the  state  colleges  and  normal  schools,  or  one  specially  appointed 
independent  of  these,  and  provided  with  funds  for  publicity,  could  do  a 
magnificent  work  in  the  next  two  or  three  years  in  bringing  these  in- 
evitable needs  to  the  knowledge  of  the  taxpayers.  They  might  then 
become  ashamed  of  "sweating"  public  education  out  of  the  teachers  and 
realize  that  the  more  respectable  and  attractive  the  occupation  the  better 
material  it  will  draw  to  its  ranks. 

Mathematics  and  Physical  Science  Division  —  Miami. 

We  recommend  that  the  legislature  provide  for  a  committee  of 
three  whose  duty  it  shall  be  to  disseminate  positive  and  impressive  infor- 
mation to  all  householders  of  the  state  in  regard  to  health,  sanitation, 
venereal  diseases,  insanity,  idiocy,  etc.  Books  and  long  scientific  articles 
are  not  read,  or  not  understood  or  believed,  but  short  plain  statements  of 
fact  addressed  personally  and  frequently  to  a  man  or  woman  will  be 
efifective. 


EXAMINING  BOARDS  BELONG  IN  EDUCATIONAL 
DEPARTMENT 

At  present  there  are  eight  separate  examining  boards,  with  33  mem- 
bers each  chosen  from  within  the  profession  whose  entrance  and  pro- 
fessional standards  it  guards.  For  1921  the  state  appropriations  for 
these  eight  boards  are  as  follows,  taken  in  the  order  in  which  they  appear 
in  the  appropriation  bill: 


362  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

Personal  Ma'inte- 

Board  Service  nance  Total 

State  Board  of  Accountancy   (3) $265  00  $365  00  $630  00 

State  Dental  Board    (5  members) 3,425  00  1,020  00  4,445  00 

State  Board  of  Embalming  Examiners   (2)..  1,800  00  1,300  00  3,100  00 

State  Medical  Board    (7  members) 10,900  00  3,970  00  14,870  00 

Nurse   Registration    (3) 7,115  00  1,513  50  8,628  50 

State  Board  of  Optometry   (5) 3,840  00  1,350  00  5,190  00 

State  Board  of   Pharmacy    (5) 5,815  00  3,385  00  9,200  00 

State  Board  of   Veterinary  Examiners    (3)..  200  00            200  00 

Taking  the  per  diem  and  traveling  expenses  alone  of  these  boards, 
state  expense  is  as  follows : 

Traveling 
Board  Expenses      Per  diem 

State  Board  of  Accountancy $100  00  $200  00 

State   Dental   Board" 850  00  2,000  00 

State  Board  of  Emblaming  Examiners 600  00  600  00 

State  Medical  Board 2,600  00  2,450  00 

Nurse    Registration    800  00  1,900  00 

State  Board  of  Optometry 500  00  2,000  00 

State  Board  of   Pharmacy 2,500  00  1,500  00 

State  Board  of  Veterinary  Examiners 200  00 

This  makes  a  total  of  $10,850.00  for  expenses  of  board  members 
and  $7,950.00  for  travehng  expenses  out  of  a  grand  total  of  $46,  263.50 
for  maintaining  these  separate  boards. 

It  is  suggested  that  the  separate  boards  be  abolished  and  that 
their  present  duties  and  powers  be  transferred  to  the  Ohio  board 
of  education  without  specification  in  the  law  as  to  the  number  of 
examiners  and  assistants  who  must  be  employed  full  time  or  the  number 
of  professional  men  or  women  in  each  group  who  may  be  employed  for 
consolidation  by  the  Ohio  board  of  education.  At  present  these  full  time 
employees  total  the  following:  state  board  of  acountancy,  state  dental 
board  and  state  board  of  embalming  examiners,  i  each;  state  medical 
board,  4;  nurse  registration,  3  ;  state  board  of  optometry,  2 ;  state  board  of 
pharmacy,  3. 

Each  of  these  separate  boards  acts  in  accordance  with  state  law  to 
uphold  and  presumably  to  advance  the  standards  of  its  profession.  The 
power  of  the  state  is  given  to  the  board  in  recognition  of  the  great  im- 
portance to  society  of  the  field  occupied  by  each  profession. 

As  rapidly  as  a  profession  takes  a  new  step  forward  in  its  educa- 
tional or  professional  standards,  a  majority  or  very  active  minority  tries 
to  secure  the  backing  of  the  state  for  these  new  standards.  It  is  fortunate 
that  in  years  past  professional  leaders  and  the  professional  rank  and  file 
have  used  their  closer  knowledge  of  their  profession's  requirements  for 
the  public's  protection.  It  is  essential  that  no  backward  steps  shall  be 
taken  which  will  subtract  in  the  slightest  degree  from  the  protection  given 
to  the  public  by  professional  examining  boards. 


ON   ADMINISTRATIVE   REORGANIZATION  363 

Furthermore,  it  is  important  that  the  state  retain  the  active  co-opera- 
tion of  the  various  professions  in  maintaining  and  advancing  high  stand- 
ards for  admission  to  and  retention  in  any  profession. 

There  is,  however,  one  aspect  of  this  present  co-operation  which 
should  henceforth  require  public  attention,  namely,  the  basic  idea  under- 
lying every  one  of  these  examining  boards  as  now  constituted  is  the  pro- 
tection of  the  profession  rather  than  the  protection  of  the  public.  It  is 
true  that  the  reason  advanced  for  giving  state  authority  to  professional 
boards  and  for  having  the  state  name  these  boards  is  that  their  duties 
concern  the  public  welfare.  Within  each  profession  there  exists  a  far- 
sighted,  socially-minded  group,  sometimes  a  majority,  at  other  times  an 
aggressive  minority,  which  strives  successfully  to  think  of  the  public  iur 
terest  first.  It  is  also  true,  however,  that  in  spite  of  best  intentions  on 
the  part  of  examining  board  members  and  of  socially-minded  individuals, 
the  point  of  view  has  heretofore  been  primarily  that  of  the  profession 
which  does  not  want  its  accepted  standards  lowered  and  competition 
fostered  by  the  admission  to  practice  of  persons  who  cannot  reach  the 
present  standard.  The  practitioner's  interest  or  so-called  vested  right 
has  uniformly  been  recognized  by  "covering  in"  or  accepting  as  certified 
by  the  state  all  persons  already  practicing  even  though  many  were  not  fit 
according  to  the  new  standard.  No  method  of  insuring  a  continuing 
preparedness  has  ever  been  incorporated  in  law  because  the  power  of 
those  within  a  profession  has  always  been  great  enough  to  prevent  such 
a  requirement. 

The  time  has  come  when  the  public's  interest,  that  is,  the  in- 
terest of  those  who  patronize  these  professions,  should  be  the  pri- 
mary consideration  in  making  up  examinations.  It  is  for  that 
reason  that  it  is  suggested  to  abolish  the  present  boards,  tO'  give 
up  the  idea  of  having  continuous  separate  boards  for  each  profes- 
sional service,  and  to  recognize  the  solidarity  of  the  state's  interest 
and  the  educational  motive  which  should  dominate  professional  ex- 
suninations  by  placing  all  of  this  work  under  the  direction  of  the 
newly  organized  Ohio  board  of  education. 

The  representatives  of  several  professions  in  Ohio  have  told  us  that 
they  would  welcome  such  a  change  provided  that  no  one  of  the  several 
professions  were  singled  out  for  the  experiment.  They  recognize  the 
plan  as  one  which  has  already  been  tried  in  New  York  under  the  state 
board  of  regents  for  several  of  the  professions  and  believe  that  it  would 
work  beneficially  in  Ohio.  Secretary  R.  H.  VoUmayer  of  the  Ohio  state 
dental  board  wrote  of  the  proposed  merging  as  follows :  "If  the  differ- 
ent professions  would  have  equal  representation  on  a  combined  board 
and  if  the  laws  regulating  ethical  standards,  examination  fee,  fines  for 
misdemeanors,  reasons  for  revocation  of  license  and  fees  for  registration 
are  also  identical,  I  can  see  no  reason  why  a  combined  board  would  not 
be  equally,  if  not  more  efficient." 


364  REl'OKT  OF   JOINT   LEGISLATIVE   COMMITTEE 

Everything  which  is  now  done  by  eight  boards  with  30  members  now 
employing  .continuously  23  executive  officers  and  assistants  could  be 
better  and  more  economically  done  by  a  single  standardizing  agency 
whose  motive  is  primarily  educational. 

The  co-operation  of  the  professions  could  be  retained  and  increased 
to  even  a  larger  degree  than  is  now  possible,  for  under  the  leadership  of 
an  Ohio  board  of  education  there  would  be  lacking  certain  elements  that 
now  foster  dissension  within  professions.  It  is  very  hard  for  a  governor 
to  select  three  or  five  or  seven  members  of  a  profession  for  long  terms 
without  running  counter  to  factional  prejudices.  Results  of  such  mis- 
haps last  through  years  when  long  term  memberships  are  held. 

Under  the  proposed  plan  no  physician  or  dentist  or  nurse  would 
be  permanently  retained  except  as  a  possible  employee  by  the  state 
as  an  adviser  in  examinations.  On  the  contrary,  individuals  or 
groups  would  be  called  in,  each  a  specialist  in  his  field,  for  advice  with  re- 
gard to  examinations,  perhaps  to  interview  and  test  candidates,  and  even 
perhaps  to  help  mark  certain  papers,  and  then  they  would  go  back 
promptly  into  the  current  of  their  profession  with  the  same  status  as  all 
colleagues.  Where  now  examining  board  members  often  come  to  feel 
that  they  have  a  proprietary  right  to  leadership  in  the  profession  and  to 
determination  of  standards,  the  temporary  examiners  could  acquire  no 
such  exalted  misconception  of  their  function  and  place. 

Not  an  iota  of  professional  and  scientific  ability  would  be  sub- 
tracted from  the  preparation  of  the  examination  and  the  marking  of 
it.  Laymen  would  not  be  engaged  for  professional  examinations. 
The  change  means  that  professional  men  would  not  be  engaged  for 
lay  work,  would  not  be  permanently  engaged  for  work  that  centered 
in  two  periods  of  the  year,  and  when  engaged  would  be  used  as 
experts  representing  the  state's  educational  requirements  and  not 
as  boards  from  within  professions  possessing  power  to  raise  or  lower 
professional  standards  and  increase  or  decrease  public  protection. 

While  some  considerable  economy  may  be  effected  by  this  method 
of  substituting  temporary  for  continuing  full  time  service,  of  recognizing 
the  clerical  character  of  most  of  the  work  and  of  greatly  reducing  travel- 
ing expenses,  the  main  advantage  from  such  a  change  would  be  that  the 
same  educational  agency  which  sets  the  minimum  standard  for  educa- 
tional attainment  in  other  directions  and  which  will  always  be  reaching 
out  and  forward  in  the  hope  of  raising  that  minimum  standard  and  of 
extending  the  numbers  who  attain  it,  will  be  held  responsible  for  saying 
what  it  is  that  a  dentist  or  physician  or  nurse  should  know  and  be  able 
to  do  before  the  state  of  Ohio  certifies  to  his  or  her  ability  and  permits 
him  or  her  to  practice  upon  Ohio  citizens. 

Another  extremely  important  advantage  is  this :  Because  pupils 
or  students  and  teachers  alike  are  influenced  in  their  study  before 
examinations  by  what  they  expect  to  be  asked  at  examination,  this 


ON   ADMINISTRATIVE   REORGANIZATION  365 

method  gives  the  state  a  chance  to  immediately  and  progressively 
influence  the  program,  procedure  and  results  of  all  the  training 
schools  and  self-students  that  are  preparing  men  and  women  for 
these  various  public  professions.  At  the  same  time,  it  would  influence 
teaching  in  other  states  where  students  are  preparing  for  practice  in 
Ohio. 

If  faculties  and  students  know  that  examinations  in  Ohio  as 
prepared  for  and  by  the  state  department  of  public  instruction  v^rill 
use  the  laboratories  of  Columbus,  then  courses  of  study  will  be  modi- 
fied to  give  training  via  doing,  via  field  work,  via  saving  human  life,  con- 
ducting sanitary  investigations  and  organizing  health  work  where  the 
passing  mark  will  be  correct  and  not  an 'average  of  75%  or  80%.  In 
the  field  of  accountancy,  schools  and  private  studies  will  include  field 
work,  the  public  purpose  of  accountancy,  and  the  governmental  and  social 
problems  that  an  Ohio  certified  accountant  should  have  both  desire  and 
ability  to  solve. 

For  example,  it  is  obvious  even  to  a  layman  that  no  person  ought 
to  be  given  state  permission  to  practice  medicine  who  does  not  know  the 
facts  about  modern  preventive  hygiene  and  ways  in  which  municipalities 
and  states  are  practicing  preventive  hygiene.  Whether  or  not  candidates 
for  admission  to  trained  work  should  be  asked  questions  about  preven- 
tive hygiene,  social  hygiene,  community  hygiene,  proper  organization  of  a 
state  department  of  health,  hygiene  teaching  and  hygiene  practice  in 
schools,  etc.,  should  not  be  left  to  any  profession  or  any  three  or  five 
members  of  it  to  decide. 

Whether  a  would-be  dentist  knows  how  teeth  can  be  saved  and  the 
social  importance  and  moral  obligation  of  saving  teeth  as  well  as  the 
mechanical  technique  of  repairing  teeth  is  of  the  utmost  importance  for 
society  to  ascertain  before  it  gives  its  sanction  to  his  practice  and  should 
not  be  left  to  the  members  of  a  profession  or  any  three  or  five  members 
of  it  to  decide. 

Surely  we  have  come  to  the  time  when  no  person  should  be  allowed 
to  practice  in  any  pfofession  of  whom  the  state  has  not  ascertained  before 
admission  that  he  is  free  from  transmissible  diseases,  a  requirement  which 
it  would  be  vastly  easier  for  a  central  board  of  education  to  enforce  than 
for  examining  boards  chosen  from  within  each  profession. 

The  higher  the  standard  of  general  intelligence  the  more  dependent 
society  becomes  upon  professions  and  the  more  important  to  every  man 
is  the  training  which  is  given  for  the  professions.  It  is  from  the  learned 
professions  that  the  public  secures  its  indispensable  builders  and  counsel- 
lors. The  public  needs  engineers  of  many  kinds  and  it  cannot  afford 
bunglers ;  it  needs  lawyers  and  surgeons,  physicians  and  teachers.  Even 
if  It  did  not  give  a  quasi-monopoly  to  those  who  are  admitted  to  any  pro- 
fession it  would  still  need  to  concern  itself  about  the  qualifications  of 
those  who  are  to  do  its  counselling,  curing,  building  and  teaching. 


366  REPORT  OF  JOINT   LEGISLATIVE    COMMITTEE 

Once  having  recognized  the  piibHc's  interest  and  protection  as  the 
first  consideration  when  admitting  new  members  to  a  profession,  and 
having  charged  the  state's  educational  standardizer  and  leader  with  re- 
sponsibiHty  for  fixing  every  higher  standard  for  admission  to  practice 
professions,  it  will  be  easy  to  secure  the  following  five  minimum  essen- 
tials: 

1  —  There   should  be   wider  publicity   of   the  facts  about  each 

profession,  its  standards  for  admission,  the  kinds  of  work 
it  does,  its  rewards,  the  number  who  makei  a  living  by  it,  and 
the  special  qualifications  for  success  in  it. 

2  —  Special  training  for  citizenship,  special  knowledge  of  pub- 

lic service  needs  and  opportunities  and  of  governmental 
aims,  methods,  and  results  should  be  a  prerequisite  of  ad- 
mission to  professional  courses. 

3  —  No  person  who  has  not  proved  his  preparation  for  service 

by  actually  doing  what  he  has  learned  how  to  do  should 
be  considered  fit  for  any  one  of  the  learned  professions. 

4  —  No  person  should  be  admitted  to  any  profession  who  has 

not  had  theoretical   and    field   training   in   the  public   uses 

which  are  being  made  and  which  should  be  made  of  his  pro- 
fession. 

5  —  In   every  community   the   men  and  women  who  are  prac- 

ticing each  profession  should  maintain  an  active  organiza- 
tion for  giving  to  the  public  currently  the  benefit  of  the 
special  insight  and  special  experience  which  are  gained  by 
practicing   that  profession. 

Three  practical  questions  remain  to  be  answered : 

1  —  Is  the  volume  of  work  so  great  as  to  cause  a  serious  diversion 

of  energy  from  supervision  of  education  to  examining  for  the 
professions  ? 

2  —  Is  it  fair  and  expedient  to  ask  an  Ohio  board  of  education  to 

be  on  the  lookout  for  malpractice  and  to  prosecute  and  disbar 
those  found  guilty  of  violating  professional  standards? 

3  —  Why  should  not  this  examining  work  if  transferred  be  placed 

under  the  state  department  of  health  rather  than  the  state  de- 
partment of  education? 

While  not  exactly  a  congenial  type  of  service  for  a  state  department 
of  public  instruction,  the  maintenance  of  legal  and  professional  standards 
of  practice  could  easily  be  organized  and  managed  more  economically 
from  one  office  than  from  several.  In  this  work  the  full  co-operation  of 
the  strongest  members  of  each  profession  can  be  enlisted.     The  state 


ON   ADMINISTRATIVE   REORGANIZATION  367 

and   county   prosecuting   officers   will   work   as    earnestly    for   a   central 
standard  maker  as  for  a  number  of  separate  boards. 

As  to  the  volume  of  work,  it  is  not  as  great  as  such  names  as  state 
dental  board  and  state  medical  board  suggest.  In  the  last  five  years  the 
state  medical  board  has  admitted  through  reciprocity  with  other  states, 
that  is,  without  examination,  369  or  the  equivalent  of  74  each  year,  and 
has  examined  865  or  the  equivalent  of  173  each  year.  Of  865  the  medical 
board  failed  39.  In  the  same  five  years  the  dental  board  examined  1080, 
of  whom  361  or  almost  exactly  one  in  three  have  failed.  This  volume 
of  work  falling  into  different  periods  of  the  year  and  of  the  kind  that  is 
easily  standardized  is  not  too  great  for  the  state  department  of  public 
instruction  easily  to  organize  and  direct. 

In  1919  the  state  medical  board  made  168  investigations  which  it 
cites  as  an  objection  to  a  combination  of  the  various  examining  boards 
under  one  direction.  Yet  distributed  over  a  year,  168  investigations  are 
not  many.  Much  of  this  investigational  work  can  be  done  by  officers 
of  the  state  department  who  have  other  reason  for  being  in  the  localities 
where  the  special  investigations  are  needed. 

Of  the  dental  examinations  the  total  exceeds  the  number  of  separate 
individuals  for  they  have  the  rule  that  a  person  failing  may  come  up  for 
second  re-examination  without  an  additional  fee  and  without  any  higher 
educational  requirement.  "The  board  holds  two  examinations  a  year,  one 
in  June  and  one  in  October.  Of  those  who  fail  about  three-fourths  are 
sure  to  appear  for  re-examination  at  the  next  regular  meeting  of  the 
board.  At  this  examination  about  three-fourths  of  the  three-fourths  who 
failed  pass  and  the  remaining  one-fourth  take  the  examination  at  each 
successive  opportunity  until  they  pass.  I  have  known  of  a  few  who  have 
taken  the  examination  at  least  ten  times  before  they  passed."  It  would 
be  easier  for  a  board  and  executive  officer  not  themselves  representatives 
of  a  profession  to  place  the  bars  a  little  higher  after  each  failure.  Where 
the  passing  mark  in  theory  is  75%  and  in  the  practical  examination  80% 
as  with  the  dental  board,  and  a  general  average  of  75%  with  the  medical 
board,  the  public  welfare  should  be  protected  against  special  preparation 
or  "cramming"  for  examinations. 

The  reasons  for  combining  the  work  of  these  boards  under  one 
head  are  as  cogent  as  the  reasons  which  now  give  to  the  medical  board 
responsibility  for  examining  applicants  for  limited  practice  such  as  osteo- 
pathy, midwifery,  chiropractic,  electro-therapy  and  other  branches  em- 
braced in  Section  1 274-1  of  the  General  Code.  Justifying  the  concentra- 
tion of  these  examinations  under  the  medical  board  the  secretary  of  that 
board  wrote :  "All  of  these  people  are  engaged  in  the  treatment  of  human 
ills  and  I  know  of  no  body' of  men  who  can  define  the  limitations  which 
should  be  exacted  of  a  limited  practitioner  —  a  masseur  for  example  — 
save  those  who  have  had  a  complete  education  and  have  passed  the 
necessary  examination  showing  qualification.     As  at  present  arranged,  it 


36^  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

would  seem  that  the  state  medical  board  with  the  subsidary  committees  in 
osteopathy  and  nurse  registration,  with  the  ability  to  call  to  its  assistance 
for  a  practical  examination  in  a  particular  branch  of  limited  practice,  an 
individual  qualified  to  do  such  limited  practice,  that  the  best  interests 
of  the  public  are  conserved. 

"Left  to  their  own  devices,  these  above  mentioned  limited  practition- 
ers would  prescribe  educational  and  professional  quahfications  so  ridicu- 
lously meager  that  no  standard  would  be  maintained.  Under  present  ar- 
rangement, the  state  medical  board  examines  all  of  these  applicants  in 
the  basic  branches  which  should  determine  whether  an  applicant  possesses 
the  fundamental  education  necessary  before  entering  upon  the  studies 
of  a  limited  branch." 

The  reasons  for  not  placing  such  powers  in  the  state  department  of 
health  instead  of  the  state  department  of  public  instruction  are  these. 
Commissioner  Freeman  of  Ohio's  state  department  of  health  maintains 
that  the  first  duty  of  a  department  of  heahh  is  to  secure  the  full  co-opera- 
tion of  all  practitioners;  that  this  would  be  practically  impossible  if  the 
state  department  of  health  were  mixed  up  with  the  factional  discussion 
of  proposed  new  standards  for  admision  into  the  profession,  and  con- 
stantly investigating  charges  against  individual  practitioners. 

This  view  is  supported  in  a  letter  to  your  committee  from  officers 
of  the  Michigan  State  Department  of  Health,  Dr.  R.  M.  Olin,  State  Com- 
missioner, Dr.  C.  C.  Young,  Laboratory  Chief,  and  Katherine  Ostrander, 
Director  of  the  Division  of  Social  Service  concurring  in  the  following 
statement  by  Dr.  W.  J.  V.  Deacon,  Epidemiologist :  "It  is  generally  con- 
ceded that  the  registration  and  examination  of  physicians  would  not  be 
successfully  conducted  by  ilie  state  department  of  health.  My  personal 
acquaintance  with  a  number  of  health  officers  who  are  charged  with  the 
duty  of  registration  and  examinations  leads  me  to  believe  that  the  two  do 
not  work  successfully  together.  I  believe  it  is  to  the  general  good  of  the 
entire  service  that  these  two  functions  of  protecting  the  public  and  of 
exercising  certain  police  powers  in  relation  to  practitioners  be  separate. 
....  The  greatest  possible  success  in  public  health  administration 
comes  from  securing  the  willing  obsen^ance  of  the  law  because  the  pur- 
pose of  it  is  understood." 

Of  centering  responsibility  for  examining,  these  three  Michigan 
health  officers  expressed  the  following  opinion:  "Every  state  adminis- 
tration is  hampered  in  the  administration  of  its  affairs  by  a  multiplicity 
of  boards  and  a  properly  organized  general  board  would  probably  be 
found  far  more  satisfactory  and  economical,  but  such  afcoard  must  be  em- 
powered to  secure  such  advisory  assistance  as  may  be  necessary  from  the 
various  professions  as  would  enable  them  to  conduct  a  just,  equitable  and 
intelligent  examination." 

I^y  recommending:  that  this  examination  work  come  under  an 
Ohio  board  of  education  instead  of  a  consolidated  examining  board. 


ON   ADMINISTRATIVE   REORGANIZATION  369 

it  is  hoped  to  secure  all  the  advantages  of  concentration  plus  the 
additional  advantage  of  recognizing  the  state's  part  in  the  admission 
of  new  practitioners  to  professions  which  it  licenses  as  part  of  its 
educational  program  and  accountability. 


POSSIBLE  FORWARD  STEPS.  IN  OHIO  EDUCATION  WITH- 
OUT REORGANIZING  THE  STATE  DEPARTMENT 
OF  PUBLIC  INSTRUCTION 

Ohio's  state  department  of  public  instruction  should  be  reorganized. 
The  various  proposals  made  in  other  sections  of  this  report  merit  the 
immediate  attention  of  educational  leaders  and  the  public  and  call  for 
prompt  action  by  the  legislature  soon  after  convening  in  192 1. 

As  often  happens  in  human  activities,  however,  progress  is  not 
entirely  dependent  upon  change  in  legal  forms  and  legal  machinery. 
The  following  are  cited  as  forward  steps  that  will  accomplish  much  for 
Ohio  and  that  are  typical  of  what  should  be  expected  between  now  and 
any  changes  that  are  made  in  the  formal  organization  or  legal  powers  of 
the  present  department: 

1  —  The  interest  of  the  newspapers  of  the  state  in  live  school 

news  can  be  used  more  frequently  and  cumulatively.     The 

schools  of  the  state  will  furnish  the  news  and  the  newspapers 
will  circulate  it  if  the  state  department  will  arrange  to  analyze 
it  and  pass  it  on. 

2  —  With     the     present     mimeograph     machines     and     skilled 

mimeographers  it  would  be  possible  to  circulate  between 
now  and  the  end  of  this  school  year,  during  the  summer 
when  plans  are  being  made  for  the  next  year,  and  in  the 
early  autumn  months  when  work  is  being  shaped  for  the 
next  year,  a  number  of  round  robin  reports  of  best  prac- 
tices, successes,  radical  proposals,  salary  increases  granted, 
practice  facilities  used  by  the  county  normal  schools,  and 
questions,  from  those  who  lack  experience  to  those  who 
have  it.  In  this  way  currents  of  inquiry  and  co-operation 
can  be  kept  alive. 

3  —  High  spot  bulletins  of  best  practices  and  forward  strivings 

in  other  states  and  in  Ohio  cities  and  counties  can  be  cir- 
culated such  as  the  four  which  the  department  has  already 
issued  this  year  in  separate  bulletins,  and  such  as  were  sent  to 
the  joint  legislative  committee  on  administrative  reorganiza- 
tion by  out-of-Ohio  state,  county  and  city  normal  schools  and 
colleges  of  education.  High  spot  information  is  pouring  in  to 
24 


3/0  REPORT  OF   JOINT   LEGISLATIVE    COMMITTEE 

the  department  constantly.  The  cost  of  analyzing  it  and  cir- 
culating it  is  well  within  the  present  appropriation  and  facilities 
of  the  office. 

4  —  The  educational    journals,    state   department    bulletins,   re- 

ports of  educational  studies  from  ail  over  the  country  in- 
cluding Ohio  can  be  brought  into  the  office,  distributed 
among  the  staff  for  study,  if  necessary  sent  out  to  Ohio 
state  university  graduate  and  senior  students  for  help  in 
high  spotting,  and  the  results  made  available  to  the  whole 
state. 

5  —  The  cooperation  of  the  two  journals  which  circulate  among 

Ohio  school  teachers,  tiic  Ohio  Educational  Monthly  and 
the  Ohio  Teacher,  can  be  used  far  more  frequently  and 
extensively  than  in  the  past.  The  editors  are  greatly  in- 
terested in  school  progress.  They  are  seeking  just  the  kind 
of  information  which  is  constantly  coming  into  this  office. 

6  —  The  statistics  of  the  department  for  education  throughout 

Ohio,  particularly  elementary  and  secondar}'  schools,  can 
be  made  vastly  more  helpful  and  their  story  vastly  more 
readable.  There  is  plenty  of  time  for  the  statistician  to 
devise  such  new  tables  as  are  needed  to  bring  out  new  important 
information.  The  printing  cost  is  taken  care  of.  The  school- 
men will  gladly  furnish  information  if  they  know  it  is  going 
to  be  used  for  their  benefit.  It  took  but  a  few  minutes  of  the 
statistician's  time  to  prepare  the  two  tables  for  your  committee 
showing  the  annual  salaries  paid  by  counties  and  districts  in 
Ohio  to  their  superintendents.  There  is  plenty  of  time  to  make 
and  to  have  made  by  co-operating  educators  and  students  of 
education  scores  of  such  charts  that  wall  help  the  general  public 
visualize  school  needs  and  school  gains. 

7  —  It  is  possible  to  prepare  lantern   slides   of  attractive    illus- 

trations and  to  make  the  beginning  of  a  division  of  visual 
instruction  which  an  expanded  department  should  develop 
for  the  benefit  of  the  whole  state.  To  show  from  limited  funds 
how  useful  such  visual  instruction  is  and  how  one  set  of  lantern 
slides  can  help  educate  twenty  communities  will  make  it  easier 
to  secure  the  funds  for  an  adequate  department  of  visual  in- 
struction. 

8  —  The  annual  report  of  the  department  would  cost  but  a  little 

more  time  and  money,  if  as  much,  if  it  were  made  more 
appealing  to  the  eye  and  to  the  mind  after  the  manner  of 
tlie  Rural  .School  P.ullctin  issued  in  iQJO.  A  few  postage 
.stamps  will  secure  from  the  best  run  and  best  explained  out- 
of-Ohio  state  departments  samples  of  progressive  reporting  that 
"gets  across"  to  the  public. 


ON  ADMINISTRATIVE   REORGANIZATION  37I 

9  —  Conferences  can  be  held  with  specieJ  groups,  —  superin- 
tendents of  large  cities,  superintendents  of  smaller  cities,  dis- 
trict superintendents,  county  superintendents,  principals  in 
charge  of  vocational  schools,  school  trustees,  etc.  The  expense 
of  such  conferences  need  not  even  be  borne  by  the  state  depart- 
ment except  the  small  amount  which  might  be  spent  in  sending 
calls  and  in  preparing  programs.  The  state  wants  this  kind 
of  help  to  present  leadership  without  waiting  for  a  recognized 
department. 

10  — Through  his  ex-officio  relation  to  the  state  board  of  edu- 

cation which  administers  the  federal  funds  for  vocational 
training  the  state  superintendent  has  the  means  of  learning 
all  about  alternatives  considered  for  that  work,  methods 
practiced  and  results  obtained  and  can  circulate  through 
the  wliole  state  the  facts  which  he  thus  learns. 

1 1  —  The  monthly  bulletin  can  be  sent  as  second  class  postage, 

and  if  desired  several  bulletins  can  be  issued  second  class  so 
long  only  as  "they  are  issued  from  a  known  place  of  publica- 
tion at  stated  intervals  and  as  frequently  as  four  times  a  year". 
The  difference  in  postage  between  second-class  and  third-class 
on  ten  thousand  bulletins  is  almost  $98.00  which  can  be  used 
for  more  frequent  publications,  for  large  mailing  lists  or  for 
additional  work. 

12  —  More  time  in  the  field  can  easily  be  given  even  by  the  too 

small  present  staff.  There  is  time  for  the  financial  secre- 
tary to  be  of  help  to  many  localities  wishing  to  improve  their  ac- 
counting and  statistical  work.  It  is  possible  and  highly  desir- 
able for  the  inspector  of  teacher  training  to  be  in  the  field  more 
and  making  more  of  the  visits  which  were  reported  by  several  of 
those  inspected  to  be  extremely  helpful.  It  is  possible  for  the 
assistant  superintendent,  experienced  in  county  supervision  and 
familiar  with  county  work  in  different  parts  of  the  state,  to 
spend  fully  50%  of  his  time  in  the  field  without  jeopardizing  the 
work  at  the  central  office.  Moreover,  any  state  superintendent, 
just  because  of  his  position,  can  be  of  great  help  to  county  and 
local  school  boards  and  to  officers  and  teachers  especially  when, 
as  in  the  case  of  the  present  incumbent,  this  state  leader  has  an 
unusual  capacity  for  instant  sympathy  with  the  teacher's  point 
of  view,  for  discovery  of  teachers'  capacity  and  for  epigram- 
matic utterance.  Through  and  for  such  work  the  department 
of  efficiency  tests  and  survey  established  in  1914  (G.  C. 
7654-6)  can  be  re-established. 

13  —  The   field   inspections    of   the   present  high    school   inspec- 

tional  staff  of  seven   (one  at  half  time   from  each  normal 


372  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

school  and  Ohio  State  University  and  two  at  full  time  for 
the  state  department)  can  be  made  far  more  useful.     It  is 

possible  to  include  county  normal  schools  and  the  main  needs 
of  elementary  school  systems  in  their  inspections.  It  is  not 
fair  to  any  locality  to  judge  its  high  school  needs  and  work 
except  against  a  background  of  its  elementary  school  problems 
and  work. 

Within  the  department  there  is  the  feeling  that  more 
could  be  accomplished  if  there  were  full  time  inspectors  sub- 
ject exclusively  to  the  department  in  place  of  those  named  by 
the  five  teacher  training  schools.  It  is  barely  possible  that 
quantitively  more  work  could  be  done  by  full  time  inspectors. 
It  is  possible  even  that  better  work  would  be  done  so  far  as 
individual  inspections  are  concerned.  It  is  doubtful,  however, 
if  so  much  benefit  could  thus  be  obtained  for  the  schools  as 
a  whole  as  can  be  gained  now  from  this  close  co-operation  of 
the  state  department  and  the  teacher  training  schools  in  the 
inspection  of  high  schools  which  supply  the  recruits,  for 
teaching. 

So  far  as  there  is  a  breakdown  or  even  loss  of  momentum 
now  due  to  breaking  in  new  men  and  to  giving  men  a  new 
start  after  they  swing  from  college  work  to  field  work,  the  loss 
of  momentum  can  be  anticipated,  guarded  against  and  almost 
completely  overcome  Ijy  administrative  steps  well  within  the 
power  of  the  state  superintendent.  From  the  standpoint  of  fu- 
ture schools  it  is  a  pity  that  every  single  faculty  member  of  each 
teacher  training  school  cannot  be  used  for  field  inspections  of 
elementary  and  secondary  schools  under  conditions  where  ac- 
countability for  dispatch,  sense,  contact,  vision,  definite  knowl- 
edge of  school  requirements  and  ability  to  analyze  and  test  can 
be  exacted  by  the  state  department. 
14  —  Almost  to  a  dollar  moneys  voted  for  the  state  department's 
own  use  and  for  expansion  of  school  work  in  counties  and 
districts  can  be  profitably  expended.  There  never  should 
be  $100,000  or  one-half  or  one-fourth  or  one-tenth  that  amount 
returned  to  the  general  fund  because  it  has  not  been  earned 
by  counties  and  districts  or  because  its  constructive  use  has 
not  been  insisted  upon  by  the  state  department's  executive.  In 
19 1 9  the  funds  for  traveling  and  office  expenses  (about 
$8,000)  might  have  been  so  used  that  the  $93,000  appro- 
priated for  counties  and  districts  which  was  turned  back 
would  have  been  earned  by  them.  At  least  the  department 
could  have  ha\l  a  record  of  having  explained  to  these  districts 
the  advantages  to  their  own  children  of  spending  money  nec- 
essary to  earn  the  state  appropriations. 


ON  ADMINISTRATIVE   REORGANIZATION  373 

15  —  A  school  program  can  be  prepared  for  submission  to  the 
next  legislature  which  will  include  a  clear  and  convincing 
statement  of  the  next  steps  for  Ohio's  schools  which  should  be 
taken  up  by  the  state  department  of  public  instruction,  to- 
gether with  the  cost  of  those  steps.  Where  heretofore  for 
several  terms  the  department  has  been  cutting  its  costs  and 
yielding  to  uninformed  or  misinformed  demands  for  retrench- 
ment it  should  now  take  the  reins  and  explain  to  the  legislature 
and  the  public  the  need  for  a  greatly  enlarged  budget.  Any 
state  which  has  voted  the  school  revenues  which  Ohio's  legis- 
lature unanimously  voted  in  1920  will  see  the  advantage  of 
appropriating  the  relatively  small  additional  amounts  necessary 
to  qualify  the  state  department  of  public  instruction  to  help 
districts,  counties,  and  cities  use  their  new  taxing  power  most 
effectively.  Without  state  leadership  of  the  right  kind  it  will 
be  easy  for  the  people  of  Ohio  to  waste  many  times  the  amount 
which  a  properly  equipped  state  department  would  cost. 

POSTSCRIPT 

Letters  and  instructions,  calls  for  conference  and  other  educational 
matters  which  have  been  sent  by  the  new  state  superintendent  to  Ohio 
school  officers  since  this  report  was  written  show  that  many  forward 
steps  have  been  taken.  It  is  recommended  that  your  committee  ask  the 
state  superintendent  of  public  instruction  to  summarize  such  forward 
steps  for  presentation  to  the  legislature  and  public  in  January  1921. 


374 


REPORT  OF  JOINT   LEGISLATIVE    COMMITTEE 


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37^  REPORT  OF  JOINT  LEGISLATIVE    COMMITTEE 


OHIO'S  THREE  UNIVERSITIES 

Ohio  is  already  spending  upon  its  higher  education  the  enormous 
total  of  $2,325,000  which  unless  conditions  and  public  sentiment  change 
will  shortly  be  doubled;  $150,000  for  Bowling  Green  normal  college; 
$175,000  for  Kent  normal  college;  $250,000  for  Miami  university; 
$250,000  for  Ohio  university;  $1,500,000  for  Ohio  state  university. 

Ohio  has  three  universities:  Ohio  university,  1023  students,  63 
registered  as  non-residents  at  Athens,  started  in  1802  as  the  American 
Western  university  and  was  christened  Ohio  university  in  1864;  Miami 
university,  1033  students,  138  non-residents,  at  Oxford,  established  by 
legislative  act  in  1809;  Ohio  state  university,  6608  students,  566  non- 
residents, at  Columbus,  established  by  the  legislature  in  1870.  The  Ohio 
residences  of  students  as  given  by  students  are  shown  on  the  service 
spot  maps  submitted  herewith,*  —  to  the  slight  overstatement  of  numbers 
from  college  towns  because  students  move  there  for  their  college  course 
or  non-residents  often  claim  residence  there. 

Each  of  these  three  universities  has  its  own  board  of  trustees  ap- 
pointed by  the  governor  with  the  advice  and  consent  of  the  senate, — 
Ohio,  19  appointed  for  life,  plus  the  president  and  the  governor  of  the 
state  exofficio;  Miami,  27,  nine  trustees  every  third  year  for  a  term  of 
nine  years ;  Ohio  state  university,  seven  for  a  term  of  seven  years  each. 

Each  of  three  universities  gives  the  same  or  similar  non-professional 
courses  running  through  four  college  years.  Each  of  them  has  a  four 
year  course  for  teachers  which  prepares  for  high  school  teaching.  Each 
of  them  has  a  rapidly  growing  summer  school.  Each  of  them  is  inde- 
pendent of  the  others  in  its  internal  management,  faculty  organization, 
courses  of  study,  standards  for  students,  etc.,  except  that  Miami  and 
Ohio  universities  have  agreed  to  discontinue  work  for  the  master's  de- 
gree and  that  all  three  are  represented  in  a  conference  of  higher  educa- 
tion in  which  Bowling  Green  and  Kent  normal  colleges  are  also  repre- 
sented. Informal  cooperation  gives  each  institution  a  slight  acquaintance 
with  the  other  two. 

For  the  graduate  work  leading  to  the  degree.  Doctor  of  Philosophy, 
the  state  law  has  designated  Ohio  state  university  alone.  Section  7923 
declares  a  policy  for  all  time  to  come,  namely, 

1  —  The  state  will  build  up  one  university  worthy  of  it  as  now 

begun  by  Ohio  state  university,  and 

2  —  Miami  and  Ohio  universities  are  to  be  colleges  of  liberal  arts 

but  are  not  to  include  technical  or  graduate  instruction  aside 
from  the  usual  graduate  work  for  the  decree  of  master  of  arts 
(which  last  has  been  given  up  volunt^-ilr  ay  .''Oth  imiversities). 


*  Sec  appendix. 


ON   ADMINISTRATIVE   REORGANIZATION  379 

Over  these  three  independent  institutions  there  is  no  state  author- 
ity now  exercising  educational  supervision  except  so  far  as  questions 
asked  and  proposals  made  by  the  auditor  of  state,  the  budget  commis- 
sioner, the  governor,  finance  committees  of  the  legislature  or  the  general 
assembly  itself  may  constitute  supervision. 

No  formal  relation  whatever  exists  between  the  state  department  of 
public  instruction  and  the  three  universities  with  respect  to  any  part 
of  their  work  except  certification  of  teachers. 

Question :  Shall  this  present  complete  independence  of  each  uni- 
versity be  continued,  modified,  or  abandoned? 

This  present  organization  violates  current  orthodox  and  advanced 
theories  of  proper  organization  for  state  educational  institutions.  Using 
theory  as  a  searchlight  a  clear  need  is  pointed  out  by  several  Ohio  edu 
cators  and  by  out-of-Ohio'  observers  for  several  different  changes : 

1  —  A  single  board  which  shall  have  charge  not  only  of  the  uni- 

versities but  of  all  other  educational  services  of  the  state. 

2  —  Such  a  single  board  with  a  chancellor  over  all  the  three  uni- 

versities, having  power  to  name  presidents  and  to  carry  out 
the  board's  policies. 

3  —  A  single  board  for  the  three  universities  and  two  normal  col- 

leges, administering  through  a  president  and  faculty  for  each 
institution  which  would  be  entirely  independent  of  officers  and 
faculties  of  other  institutions. 

4  —  A   central   board    over   the    three   universities    alone   working 

through  a  separate  president  and  faculty  for  each  institution. 

5  —  A  single  board  with  a  chancellor  over  the  three  universities 

working  through  a  president  and  faculty  in  each  institution 
separate  from  all  the  others. 

6  —  The  abandonment  of  the  college  of  liberal  arts  at  Miami  and 

Ohio  universities  and  retention  of  their  colleges  of  education. 

7  —  The  development  of  Bowling  Green  and  Kent  normal  colleges 

into  colleges  of  liberal  arts  with  integral  four  year  colleges  of 
education  while  still  retaining  two-year  normal  courses  for 
teachers,  in  this  way  with  Miami  and  Ohio  providing  four 
colleges  in  four  corners  oi  the  state  and  a  central  state  uni- 
versity at  Columbus  for  professional  senior  college  and  grad- 
uate work,  faculty  and  student  research  and  experimentation. 

Of  these  seven  suggestions  the  last  alone  is  suggested  as  a  practical 
next  step  for  Ohio.  The  reasons  for  and  against  the  others  are  less  im- 
portant at  this  point  than  the  reasons  for  the  alternative  and  compromise 
suggestions  which  follow: 


380  REPORT  OF   JOINT  LEGISLATIVE    COMMITTEE 

1  —  Begin   the   co-ordination   of   Ohio's   three   universities   and 

two  normal  colleges  by  first  securing  and  co-ordinating 
information  about  them  rather  than  by  attempting  to 
physically  co-ordinate  officers  and  faculties.  This  can  be 
done  by  giving  the  state  department  of  public  instruction  the 
power  and  the  duty  to  learn  and  publish  the  facts  about  organ- 
ization, program,  equipment,  products  and  needs  of  these  in- 
stitutions against  its  background  of  public  school  needs 
throughout  Ohio. 

2  —  Encourage  and  continue  the  higher  education  conference, 

expect  it  to  be  active  in  discovering  and  discussing  com- 
mon problems,  and  foster  such  activity  by  making  budgetary 
l^rovision  for  a  qualified  itinerant  investigator  and  circulator 
of  information  about  high  spots,  best  practices  and  suggestions. 

3  —  Give  the  same  number  of  trustees  to  each  of  the  three  uni- 

versities with  the  same  method  of  appointment  and  tenure, 

that    is,   reduce   Ohio's   trustees    from   21    with   life   terms    to 

seven  with  seven  year  terms ;  reduce  Miami's  27  with  nine 
year  terms  to  seven  with  seven  year  terms;  leave  Ohio  state 
university  with  number  and  tenure  as  at  present,  seven  mem- 
bers for  seven  years.     Later  it  will  probably  prove  advisable 

to  reduce  the  number  to  five  as  in  the  case  of  trustees  for 

Bowling  Green  and  Kent  normal  colleges. 

4  —  Put  a  premium  upon  democratic  cooperation  within  facul- 

ties and  between  faculties  and  managements  on  the  basis 
of  fact  by  requiring  trustees  to  hold  public  meetings,  to 
hold  executive  sessions  only  for  reasons  and  with  results 
stated  in  minutes,  to  record  proposals  discussed  as  well  as 
actions  taken,  to  distribute  proceedings  among  faculty,  to  ask 
co-operation  of  faculty  when  vacancies  occur  as  suggested  in 
the  section  on  faculty  organization. 

5  —  Require   each   institution  to   provide  for  current   scientific 

self-study  through  a  division  of  administrative  research  and 
reference  equipped  (i)  to  analyze  the  field  each  institution 
is  altenipling  to  cover,  methods  employed  and  results  obtained 
and  (2)  to  obtain  and  circulate  among  officers  and  faculty 
helpful  information  from  other  Ohio  activities  inside  and 
outside  of  Ohio.  It  is  more  prodigal  for  a  university  to  be 
without  administrative  self-research  than  for  a  great  business 
to  be  without  a  testing  laboratory  and  a  cost  department.  As 
all  of  the  institutions  train  teachers,  and  as  the  advanced  work 
of  the  Ohio  state  university's  college  of  education  calls  for 
clinical  material,  it  will  be  possible  through  divisions  of  refer- 
ence and  research  to  kill  two  birds  with  one  stone,  (i)  secure 


ON   ADMINISTRATIVE   REORGANIZATION  3^1 

indispensable  information  at  a  low  cost  and  (2)  at  the  same 
time  provide  invaluable  field  training  for  prospective  teachers 
and  school  administrators.  Not  the  least  important  duty  of 
such  a  division  for  self-study  should  be  listing  the  unmet  needs 
of  its  institutions  and  specifying  those  needs  which  might  be 
met  by  citizen  gifts  of  time  or  money. 

No  other  step  will  bridge  the  chasm  that  is  widening  be- 
tween faculties  and  administrators  and  faculties  and  trustees.  - 
Instead  of  opposing  every  attempt  by  trustees  and  business 
management  to  understand  educational  problems  and  deal  with 
them  on  a  basis  of  established  information,  faculties  should 
promote  methods  of  organization  which  will  make  it  difficult 
if  not  imposible  for  business  managers  and  trustees  to  think  of 
the  money  and  equipment  side  of  education  without  the  aid 
of  definite  educational  information  such  as  a  bureau  of  ad- 
ministrative research  would  cumulatively  furnish. 

-  Require  that  so  far  as  time  is  the  basis  of  credit  an  hour  in 
one  institution  shall  be  the  equivalent  of  an  hour  in  one  of 
the  other  institutions,  and  that  an  hour  or  a  half  year  m  a 
county  normal  shall  be  considered  the  equivalent  of  the  same 
time  in  any  one  of  the  five  higher  institutions. 

-Require  that  each  institution  install  and  use  the  records 
necessary  to  show  at  the  beginning  of  each  semester  to 
trustees,  officers,  faculty,  council  of  higher  education,  and 
the  state  department  of  public  instruction,  the  use,  partial 
use  and  non-use  of  building  space  and  the  teaching  and  non- 
teaching  load  of  faculty  members.  Records  furnished  to 
your  committee  show  space  worth  several  million  dollars  com- 
pletely or  partially  not  used  for  over  half  the  time  and  seriously 
inequitable  distribution  of  service  loads  among  faculties.  See 
accompanying  charts.  If  continuous  and  scientific  self-study 
is  adopted  by  each  institution  many  other  helpful  records  will 
result;  for  example,  blanks  upon  which  it  will  be  easy  for 
faculty  members  and  officers  to  report  to  trustees  and  to  facul- 
ties whatever  suggestions  for  improving  university  work  they 
have  obtained  from  conventions  or  other  absences  on  leave. 

—  Encourage  but  do  not  require  uniform  and  comparable  or- 
ganization of  faculties  along  the  line  of  the  best  practices 
available  in  Ohio  or  elsewhere.  Make  special  efifort  to  keep 
out  of  faculty  meetings  all  routine  matters  that  should  be  at- 

.  tended  to  by  clerks  or.by  small  committees.  Give  the  faculty 
meetings  to  large  educational  problems  such  as  the  teacher 
shortage,  revision  of  curriculum,  cooperation  with  the  public 
schools,  'extension  education,  encouragement  of  research,  de- 


382 


REPORT  OF   JOINT  LEGISLATIVE    COMMITTEE 


USE,    PARTIAL  USE,    AKD  NON-USB  OF  HOOUS  USED  BY  STUDEHTS 
Institution     Bowling   Green  Normal  Building     Adbnini strati on 

Room     309        Typewriting  Dimensions   18  x  28   Student   Capacity      12 


Period 
Length 

Sun. 

Hon. 

Tuee. 

Wed. 

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ON   ADMINISTRATIVE   REORGANIZATION 


383 


USE,  PARTIAL  USE,  AND  NON-USE  OF  RCOUS  USED  BY  STUDENTS 
Institution    Miami  Univ.  Buildinc    Uain   Building 

Room     224         Dimensions  student  Capacity    53 


Period 
Length 


lat 
7; 50-6: 20 


Sun. 


Mon. 


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29/33 


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mm 


rhurs. 


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11-12 


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6  th 
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USE,    PARTIAL   USE,    AND  NON-USE   OE  ROOMS   USED  BY   STUDENTS 
Jjistitution         Miami   University  Building  Brice 

Room  105  Dimensions  Capacity  45 


3^^4 


REPORT  OF  JOINT  LEGISLATIVE    COMMITTEE 


velopment  of  teaching  through  field  work  and  through  doing 
what  needs  to  be  done  in  factory,  shop  or  community,  proper 
attention  to  student  housing,  boarding  and  recreation  and  to 
discovery  of  individual  students'  weak  points  needing  correc- 
tion and  strong  points  needing  development. 
Build  up  the  junior  college  years  and  teacher-preparing 
senior  college  years  in  the  four  colleges  and  so  far  as  pos- 
sible reserve  the  energies  of  Ohio  state  university  for 
senior  college  and  graduate  work  and  for  professional  train- 
ing that  cannot  be  given  in  any  of  the  other  schools. 


T3SE,  PARTIAL  USE,  AIID  KOK-USE  OF  HfflOaS  USED  BY  STUDENTS 
institution   Kent  St^ite  '.lomal         Building   Uerrill  Eall 
Room    34  Dimensions  24  x  32      Student  Capacity  40 


White- complete  use,  frnctions-partiaJ.  use,  #-nou-usf 


lo  —  Charge  all  non-residents,  i.  e.,  out-of-Ohio  residents  except- 
ing possil)lv  students  from  foreign  countries,  a  tuition  fee 
that  will  fairly  represent  the  actual  cost  to  Ohio  of  giving 
this  instruction;  prohibit  the  admission  of  non-resident  stu- 
dents to  freshman  and  sophomore  years  at  the  Ohio  state 
university ;  give  resident  students  preference  in  state  dorm- 
itories and  in  private  rooms;  refuse  in  continue  any  out-of- 
state  student  who  does  not  achieve  a  rating  of  1^  or  whose 
scale  of  expenditure  has  a  deteriorating  or  demoralizing 
efTcct  upon  cost  or  character  of  living  for  Ohio  students; 
frankly  take  the  position  that  Ohio  institutions  are  pri- 
marily for  Ohio  students  unless  conditions  develop  where 


ON    ADMINISTRATIVE   REORGANIZATION  385 

there  is  building  space  or  faculty  energy  not  required  for 
adequate  attention  to  Ohio  students. 

II  —  Charge  the  state  department  of  public  instruction  with  re- 
sponsibility (i)  for  reviewing  the  budgetary  estimates  of 
these  universities  and  colleges,  (2)  for  tentatively  recom- 
mending reductions  or  increases  according  to  its  evidence 
of  state  wide  needs,  (3)  for  conferring  with  each  institution 
before  finally  recommending  a  change  either  to  the  budget 
commissioner  or  to  the  public,  and  (4)  for  submitting  a  con- 
solidated budgetary  program  for  all  of  Ohio's  state  sup- 
ported education. 

In  drafting  laws  to  provide  for  such  steps  by  the  three  universities 
and  two  normal  colleges,  it  will  be  necessary  to  have  many  conferences 
and  to  work  out  details  fitted  to  each  institution..  It  is  not  necessary  to 
take  your  committee's  time  to  explain  all  of  the  ramifications  of  these 
suggestions.  It  would  be  possible  from  statements  by  the  faculty  and 
officers  themselves  to  show  concretely  in  many  different  ways  for  each 
institution  the  need  for  such  steps.  It  is  enough  to  recall  that  it  is  upon 
these  institutions  that  Ohio  relies  for  the  recruiting  and  training  of 
teachers  and  the  recruiting  and  training  of  men  and  women  for  other 
professions,  and  for  the  higher  life  imposed  by  American  citizenship  upon 
college-bred  men  and  women. 


OHIO'S  NEED  FOR  JUNIOR  COLLEGES 

From  faculty  members  of  state  and  private  colleges  in  Ohio  came 
many  appeals  for  a  central  state  university  which  should  be  primarily 
a  university  and  not  primarily  an  institution  for  elementary  college  work. 

Even  Ohio  state  university  itself  throws  up  its  hands  in  dismay 
at  its  thousands  of  freshmen  and  asks  relief  from  the  other  thousands 
that  the  future  promises.  Faculty  members  and  the  president  agree 
that  unless  something  is  done  to  give  this  central  institution  relief  from 
veritable  hordes  of  elementary  students  it  cannot  hope  to  develop  ability 
to  serve  Ohio  as  other  institutions  in  the  state  are  not  equipped  to  serve. 
Educational  leaders  in  the  faculty  at  Ohio  state  university  and  among 
its  trustees  want  to  develop  along  advanced  lines  of  scholarship,  build  up 
professional  schools,  graduate  schools,  and  faculty  and  student  research 
which  will  both  add  to  the  sum  of  human  knowledge  and  will  immediately 
and  permanently  serve  the  interest  of  Ohio's  commerce,  industry,  agri- 
culture and  government. 
25 


386  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

Two  ways  out  are  proposed : 

1  —  Raise  scholastic  requirements  and  free  the  university  from  the 

necessity  of  accepting  all  Ohio  high  school  graduates  who  wish 
to  register. 

2  —  Establish  junior  colleges,  which  means  adding  two  stories,  of 

college  grade,  freshmen  and  sophomore,  to  the  high  school 
work  done  in  cities  and  counties  throughout  the  state,  plus 
the  fostering  of  relations  with  other  state  and  private  schools 
of  college  grade  by  which  these  other  shall  specialize  in  the 
training  of  freshmen  and  sophomores  and  the  Ohio  state  uni- 
versity shall  specialize  in  the  training  of  juniors,  seniors,  grad- 
uate students  and  professional  students. 

The  first  alternative,  that  of  turning  back  the  hands  of  the  clock 
and  withdrawing  the  declaration  that  high  schools  exist  for  all  the  stu- 
dents in  them  and  not  for  the  preparation  of  a  few  for  college,  is  not 
seriously  thinkable  for  Ohio.  Democracy  does  not  go  back  in  such  ways 
and  for  such  reasons.  If  the  high  school  of  any  city  fails  to  prepare 
some  or  all  of  its  students  for  the  work  of  the  universities,  the  remedy 
is  to  improve  that  city's  high  schools.  For  such  services  the  state  de- 
partment of  public  instruction  exists.  Facts  about  the  breakdown  of  any 
high  school  should  be  used  by  the  universities  and  the  state  department 
for  improving  that  school's  standards  and  not  for  crippling  that  school's 
ability  to  serve  its  entire  student  body  and  the  business  and  society  they 
are  to  enter. 

The  second  alternative,  the  development  of  junior  colleges,  must  be 
seriously  considered  by  Ohio  not  merely  because  the  Ohio  state  uni- 
versity has  more  junior  college  men  and  women  than  it  is  organized  to 
do  justice  to  without  neglecting  other  work,  but  also  because  the  cost 
of  securing  free  tuition  away  from  home  is  so  great  that  large  numbers 
of  Ohio  boys  and  girls  will  never  have  a  college  education  unless  at 
least  the  two  early  years  are  brought  practically  to  their  home  doors. 

If  this  second  suggestion  is  acted  upon  there  will  remain  for  junior 
college  work  at  Ohio  state  university  a  very  large  registration  from 
Columbus,  Franklin  county  and  adjacent  counties.  The  distribution  of 
the  present  register  is  shown  on  the  accompanying  service  map  made 
by  Registrar  E.  H.  Cockins  for  }our  committee.  This  map  shows  the 
total  of  3563  junior  college  registrants  in  the  first  semester  of  1919-1920, 
of  whom  1076  were  from  Columbus  and  Franklin  county  and  220  from 
counties  contiguous  to  Franklin.  All  the  rest  of  the  2267  junior  college 
registrants  would  be  appropriately  distributed  among  four  other  colleges, 
except  that  a  considerable  proportion  of  them  must  continue  to  come  to 
Columbus  for  special  professional  work  in  engineering,  dentistry,  medi- 
cine,   etc.,    until    such    time    as    these    professional    schools    begin    their 


ON    ADMINISTRATIVE   REORGANIZATION 


387 


Strictly  professional  work  at  the  third  year  beyond  high  school  or  the 
junior  college  year,  —  a  time  which  cannot  be  far  distant. 

If  such  a  step  were  taken  for  the  better  distribution  of  students  and 
for  the  better  use  of  Ohio  state  university  a  great  many  of  the  junior 
college  students  would  undoubtedly  register  in  home  town  or  nearby 
private  colleges  rather  than  pay  the  carfare  to  attend  one  of  the  other 
four  state  institutions  which  would  lack  the  prestige  of  size  and  of  suc- 


cess in  athletics  that  now  attaches' to  O.  S.  U.  Considerable  relief  would 
result  if  there  were  no  feeders  to  the  upper  classes  of  O.  S.  U.  except 
the  four  other  state  colleges,  municipal  universities  all  of  which  now 
have  four-year  courses,  and  private  colleges.  Because  this  step  calls 
for  no  additional  expenditure  by  the  state  except  to  take  care  of  a  pos- 
sibly increased  register  at  the  four  state  colleges,  let  us  consider  the  rela- 


388  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

tion  that  would  develop  between  Ohio  state  university  and  its  recognized 
feeder-colleges. 

OJi'io  state  university  should  come  to  mean  one  great  central  uni- 
versity representing  the  highest  landing  in  the  whole  educational  pro- 
gram of  the  state.  Each  of  the  other  two  universities,  two  state  normal 
colleges,  thirty-five  county  normal  schools,  and  the  normal  department  at 
Wilberforce  should  be  definitely  recognized  as  part  of  this  university. 
For  reasons  earlier  stated,  work  done  in  one  part  should  receive  full 
credit  in  every  other  part  without,  however,  binding  one  institution  to 
continue  a  student  from  another  institution  who  proves  inability  to  carry 
its  own  work.  Each  part  of  this  greater  university  should  be  encour- 
aged and  required  to  apply  such  individual  tests  to  its  students  that  its 
credentials  will  give  to  one  of  its  students  a  chance  to  study  in  any  part 
of  the  whole  university  without  discount  for  past  time  provided  only 
that  he  works  to  grade  in  the  future. 

Certificates  or  records  of  work  should  be  signed  by  the  central 
university  as  well  as  by  the  institution  in  which  the  work  is  taken.  Thus, 
a  student  who  had  finished  four  years  in  Miami  university  would  re- 
ceive a  degree  from  the  all-Ohio  university  at  Miami;  one  who  took  the 
bachelor's  degree  at  Kent  or  Bowling  Green  would  receive  a  degree 
from  the  all-Ohio  university  at  Kent  or  at  Bozvling  Green.  The  certifi- 
cate for  work  done  at  a  normal  county  school  in  a  one-year  course 
should  be  not  only  from  the  director  of  that  county  school  but  from  the 
all-Ohio  university  at  that  county  school. 

The  details  of  this  arrangement  should  be  worked  out  as  the  result 
of  co-operative  study  by  a  reorganized  state  department  of  education 
and  Ohio's  colleges.  Without  changing  any  of  the  other  factors  in  the 
state's  present  organization  it  would  be  possible  to  effect  such  co-operation 
and  understanding  and  such  visiting  and  reporting  by  the  state  depart- 
ment of  public  instruction  that  this  kind  of  arrangement  among  the 
state  supported  institutions  would  work  to  the  advantage  of  all  and  with- 
out injury  or  inconvenience  to  any. 

The  final  certificating  would  doubtless  best  be  by  the  state  depart- 
ment of  public  instruction,  the  natural  coordinator. 

The  extension  of  such  a  relation  would  easily  run  to  private  colleges 
and  to  municipal  universities  not  under  state  control.  Obviously,  how- 
ever, in  such  cases  the  state  when  giving  a  certificate  would  be  certify- 
ing to  a  standard  which  it  has  observed  and  tested  without  being  itself 
responsible  for  the  standard.  In  order  to  encourage  even  the  weaker 
colleges  which  are  not  so  well  equipped  to  conduct  the  junior  and  senior 
courses  as  they  are  to  conduct  freshmen  and  sophomore  courses  and  to 
supervise  these  younger  students  during  their  first  years  away  from 
home,  it  would  be  necessary  to  show  that  their  participation  in  the  pre- 
paring of  these  junior  college  students  would  not  be  lost  sight  of  when 


ON    ADMINISTRATIVE  REORGANIZATION  389 

the  final  degree  was  given.  Such  recognition  would  be  indispensable  be- 
fore the  stronger  institutions  could  be  persuaded  to  send  their  senior 
college  students  to  Ohio  state  university.  At  present  it  is  easier  for  Ohio 
private  colleges  to  send  students  to  the  graduate  school  of  Ohio  state 
university  because  the  student's  connection  with  his  alma  mater  is 
definitely  recognized  in  the  final  announcement  of  the  degree,  which  ought 
also  to  be  specified  in  the  proposed  all  Ohio  certificate. 

There  is  no  reason  at  all  why  the  state  "of  Ohio  should  not  recognize 
the  institution  responsible  for  the  early  preparation  of  students  who  later 
take  degrees  from  its  central  university.  Thus  one  coming  for  two  years 
work  from  a  municipal  university  in  Cincinnati,  Akron  or  Toledo  or  one 
coming  from  one  of  the  many  private  colleges  would  receive  a  degree 
from  the  all-Ohio  state  university  (represented  by  the  state  department 
of  public  instruction)  with  the  notation  that  a  municipal  university  or 
private  college  had  contributed  one-fourth,  one-half  or  three-fourths  of 
that  student's  preparation. 

A  relation  similar^  to  this  already  exists  in  graduate  research  work. 
The  public  and  private  colleges  in  Ohio  have  a  practical  understanding 
which  with  respect  to  Miami  and  Ohio  universities  is  legalized  that  they 
shall  not  attempt  to  build  up  graduate  schools.  Nominally,  all  of  these 
institutions  are  turning  to  Ohio  state  university  for  carrying  their  ad- 
vanced students  on  into  research  and  graduate  work.  Actually,  as  many 
of  them  have  written  to  your  committee,  the  Ubiversity  has  not  been 
equipped  —  largely  because  of  its  junior  college  work  —  to  give  the 
leadership  which  these  other  institutions  wish.  The  time  has  come  for  an 
extension  of  this  principle  to  include  a  large  number  of  students  who 
prefer  the  first  two  years  in  one  of  the  other  institutions  and  the  last 
two  years  in  professional  and  other  advanced  courses  at  Ohio  state  uni- 
versity. 

One  serious  obstacle  to  this  development  is  the  large  number  of 
junior  college  students  who  register  from  Franklin  and  contiguous  coun- 
ties. These  1296  students  constitute  so  large  a  proportion  of  the  total 
junior  college  register — 50% — that  not  much  relief  will  be  efifected  unless 
a  junior  college  is  provided  for  them. 

There  are  two  ways  out  of  this  difficulty,  one  afifecting  these  stu- 
dents primarily  and  the  other  affecting  the  whole  state. 

First,  it  is  possible  to  organize  a  junior  college  on  the  campus  for  all 
elementary,  non-professional  work ;  admit  no  one  to  this  college  who  lives 
in  a  district  tributary  to  one  of  the  other  state  colleges ;  admit  no  out  of 
state  students  to  this  college;  give  it  a  special  dean,  advisors  and  other 
supervision  in  the  state's  charge  such  as  young  people  around  the  ages  of 
eighteen  to  twenty-one  should  have;  work  systematically  to  keep  to  a 
minimum  the  diversion  of  energies  from  senior  college  to  this  junior 
college  work. 


390  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

The  second  alternative  is  to  use  the  state's  influence  and  state  funds 
to  foster  the  building  up  of  junior  colleges  upon  the  high  school  systems 
of  cities  and  counties.  How  much  the  state  should  do  is  an  open  ques- 
tion.    These  steps  however  are  clearly  involved: 

1  —  It  should  have  all  state  schools  give  credit  for  advanced  work 

done  beyond  high  school  grade  in  accredited  city  or  county 
schools. 

2  —  It  should  formally  by  law  authorize  cities  to  establish  junior 

colleges. 

3  — It  should  consider  helping  cities  bear  the  expense  of  junior 

colleges  on  the  double  ground  that  it  wishes  to  place  the  ad- 
vantages of  higher  education  as  equally  as  possible  and  that 
the  home  town  or  home  county  junior  college  will  relieve  the 
state  of  still  greater  expense  at  Columbus  than  would  be  in- 
volved in  state  aid  for  cities  or  counties  that  decide  to  main- 
tain junior  colleges. 

4  —  Any  law  authorizing  the  establishment  of  junior  colleges  or 

providing  for  state  aid  should  permit  county  and  city  to  com- 
bine and  should  permit  cities  or  counties  not  having  a  junior 
college  to  pay  tuition  for  students  sent  by  them  to  nearby  cities 
having  junior  colleges. 

5  —  It  should  provide  for  adequate  helpful  supervision  of  all  junior 

colleges  bv  the  state  department  of  public  instruction. 

A  great  question  of  policy  like  this  involving  a  fundamental  re- 
adjustment calls  for  more  protracted  study  and  for  more  conferences 
among  the  agencies  involved  than  yonr  committee  contemplated.  Toledo 
university  is  having  a  field  study  made  of  junior  colleges  in  Illinois. 
Michigan  and  elsewhere.  Three  of  its  staff  have  been  made  special 
agents  of  the  U.  S.  buerau  of  education.  President  A.  M.  Stowe  has 
offered  to  make  this  report  available  to  your  committee. 

A  tentative  plan  for  the  establishment  and  maintenance  of  institu- 
tions of  higher  learning  including  junior  colleges,  marked  exhibit  i,  is 
submitted  herewith  as  prepared  by  President  Stowe.  Until  the  field 
.study  that  is  now  under  way  has  been  reported  upon,  this  plan  is  a 
helpful  basis  for  discussion.  Among  the  more  important  provisions 
are  these: 

I  —  While  a  junior  college  may  be  established  by  vote  of  council 
or  legislative  body  or  electors,  it  can  be  discontinued  only  upon 
the  vote  of  electors. 


ON   ADMINISTRATIVE   REORGANIZATION  39 1 

2  —  The  junior  college  would  have  its  own  board  of  five  trustees, 

unpaid,  each  serving  five  years,  one  going  out  each  year,  apart 
from  the  local  board  of  education  now  responsible  for  high 
schools,  —  a  controversial  proposal. 

3  —  For  a  junior  college  a  municipality  must  levy  not  less  than  .2C 

of  a  mill  and  may  levy  up  to  .35  of  one  mill  plus  .05  of  a  mill 
for  scientific  purposes,  —  provided  in  each  case  that  the  cur- 
riculum is  of  collegiate  grade. 

The  third  proviso  suggests  a  fear  which  many  have  that  junior  col- 
leges will  mean  in  many  cases  only  two  more  years  of  high  school  grade 
rather  than  two  first  years  of  college  grade.  As  a  matter  of  fact  two 
years  of  college  now  are  said  by  colleges  themselves  including  the  faculty 
and  president  of  Ohio  state  university  to  include  a  large  percentage  of 
course  of  high  school  grade.  The  president  of  Ohio  state  university  said 
to  your  committee  that  freshmen  at  the  university  were  being  given  work 
under  teachers  less  qualified  and  conditions  less  favorable  than  they  left 
last  year  in  their  high  schools.  Nevertheless,  the  need  remains  to  recog- 
nize a  distinction  between  senior  high  school  and  freshmen  college,  and 
if  a  junior  college  policy  is  to  be  embarked  upon,  precaution  should  be 
taken  to  see  that  collegiate  work  —  work  more  advanced  than  high 
school  —  will  be  done. 


FACULTY  ORGANIZATION 

Ohio  has  six  different  educational  institutions  with  faculties  that  are 
nominally  organized  for  determining  and  keeping  separate  important 
educational  policies,  namely,  Ohio  state  university,  Ohio  university, 
Miami  university.  Bowling  Green  normal  college,  Kent  normal  col- 
lege, Wilberforce  combined  normal  and  industrial  department. 

The  interest  of  individual  faculty  members  in  problems  of  organ- 
ization and  in  educational  problems  and  the  belief  of  faculty  members 
that  progress  in  their  institutions  and  in  the  state  requires  their  under- 
standing and  cooperation  are  great  assets  to  the  state.  Even  that  part 
of  tlie  present  unrest  in  several  of  these  faculties  which  is  a  feeling  of 
discontent  because  of  alleged  disfranchisement  and  lack  of  faculty  repre- 
sentation, is  an  asset  if  properly  used  by  the  state. 

At  present  each  of  these  institutions  works  by  itself.  Although  the 
state  is  owner,  supporter,  patron  and  beneficiary  it  has  no  machinery 
whatever  for  even  asking  how  these  faculties  are  organized  and  what  the 
merits  are  of  various  contentions  between  faculty  and  ofificers,  faculty 
and  trustees,  or  among  faculties. 


392  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

It  is  true  that  the  governor,  as  the  appointing  power,  supreme  ex- 
ecutive and  budget  framer  is  free  to  make  inquiry,  to  make  recommenda- 
tions and  even  to  exert  pressure  in  the  interest  of  better  organization. 

Similarly,  the  auditor  of  state  may  when  exercising  his  powers  of 
audit  ascertain  differences  in  organizing  and  difficulties  that  exist  or  are 
alleged  to  exist. 

Finally,  the  legislature  may  if  it  wishes  make  inquiry  into  such  con- 
ditions. The  fact  remains,  however,  that  such  inquiry  is  not  made  and 
that  heretofore  there  has  been  no  attempt  to  relate  faculty  organization 
to  state  needs.  Elsewhere,  it  is  recommended  that  this  duty  of  keeping 
currently  in  touch  with  all  of  these  state  institutions  and  of  viewing 
their  organization  and  results  from  the  standpoint  of  ioo%  of  Ohio's 
educational  needs  be  placed  by  statute  upon  a  state  board  of  education 
and  its  educational  director. 

Pending  such  action,  it  is  desirable  that  the  faculties  of  all  these 
educational  institutions  be  organized  so  as  to  express  the  following  basic 
principles : 

1  — It  is  information,  not  physical  presence  that  makes  democracy 

of  faculty  management  possible. 

2  —  Unless  it  is  made  some  one  person's  business  to  be  seeking  and 

circulating  information  among  faculty  members,  faculties  will 
never  have  sufficient  information  for  democratic  cooperation, 
therefore  the  division  of  administrative  research  and  reference 
elsewhere  recommended. 

3  —  Routine  matters  should  never  come  before  a  faculty  except  in 

the  form  of  typed  or  printed  memorandum  of  actions  taken 
or  of  actions  required. 

4  —  Attending  to  routine  matters  should  be  provided  for  through 

administrative  officers  or  through  one  or  more  small  faculty 
committees,  —  often  preferably  of  one  only. 

5  —  Legislation  with  respect  to  minor  matters  should  be  entrusted 

to  a  small  executive  committee,  or  senate,  as  in  Miami. 

6  —  Rotation  of  members  on  committees  should  be  the  rule,  to 

shield  the  few  from  too  much  administrative  work  and  to 
shield  the  whole  from  domination  by  a  few. 

7—  Only  matters  of  greater  magnitude,  more  particularly  unsolved 
problems  of  education,  should  ever  come  before  the  faculty  as  a 
whole;  faculties  should  keep  in  touch  with  routine  and  minor 
matters  of  legislation  and  administration  through  mimeographed 
statements  sent  by  mail  or  delivered  by  hand,  which  can  be 
quickly  disposed  of  at  each  member's  convenience. 

8  —  Major  matters  should  never  come  before  a  faculty  for  action 
as  a  surprise  or  by  oral  statement  until  after  they  have  been 


ON   ADMINISTRATIVE   REORGANIZATION  393 

submitted  in  writing  long  enough  in  advance  for  eye-minded 
members  of  the  faculty,  who  are  the  great  majority,  to  know 
what  proposals  involve.  This  means  calendars  in  advance  and 
a  known  order  of  business. 
9  —  It  would  promote  faculty  initiative  if  a  faculty  member  rather 
than  the  president  were  chairman  of  faculty  meetings  for  dis- 
cussing educational  problems. 
lo  —  The  president  should  preside  over  the  legislative  body  or 
senate.  He  should  have  the  power  to  convoke  a  faculty  meet- 
ing—  to  bear  a  welcome  and  a  program  at  the  beginning  of 
each  year,  etc.  —  and  to  speak  at  any  meeting  on  any  subject 
but  always  under  the  chairmanship  of  the  faculty. 

The  same  principles  which  apply  to  the  whole  faculty,  apply  to  the 
management  of  departmental  faculties  where  a  great  deal  of  time  is  lost 
in  sitting  around,  and  listening  to  details  that  call  for  administrative 
action,  not  debate. 

Provision  for  making  use  of  every  faculty  member's  willingness  to 
study  and  for  placing  before  every  faculty  member  important  facts 
about  institutional  problems  and  progress  at  his  own  institution,  at  all 
institutions  of  the  state  and  at  institutions  outside  of  the  state,  should 
be  made  in  the  annual  budget  not  as  a  present  to  the  faculty  but  as  a 
protection  and  advantage  to  the  state.  The  place  for  such  budget  allow- 
ance is  the  division  of  reference  and  research,  but  it  might  pay  especially 
at  O.  S.  U.  to  let  the  faculty  name  a  full  time  secretary  to  help  its 
committees. 

lliere  is  no  greater  fallacy  than  that  physical  participation  in  a 
meeting  is  democracy.  Nowhere  does  autocracy  thrive  more  than  in 
mass  meetings,  even  where  the  mass  is  small.  Inequahty  of  information 
means  inequality  of  influence.  An  uninformed  or  misinformed  person 
cannot  help  misrepresenting  the  faculty  even  if  a  faculty  member.  Had 
the  faculties  of  higher  education  in  the  United  States  and  in  Ohio  given 
one-tenth  the  time  the  last  ten  years  to  considering  education  that  they 
have  given  to  talking  about  boys  who  were  disciplined,  changes  in  cata- 
logue type,  dates  for  meeting,  etc..  we  would  not  be  confronted  with  a 
shortage  of  teachers  and  with  an  unrest  in  educational  circles  that 
threatens  not  only  education  but  democracy  itself. 

In  the  past  Ohio  faculties  like  the  faculties  of  most  other  American 
colleges  and  universities  have  kept  so  little  definite  information  in  circu- 
lation that  they  could  not  train  themselves  to  apply  the  scientific  prin- 
ciples which  they  teach  and  use  in  their  research  work  either  to  their 
own  record  making  or  to  their  theories  of  university  organization. 

This  fact  was  strongly  shown  by  the  first  draft  of  the  constitution 
proposed  for  the  Ohio  State  University.  Those  who  drafted  it  wanted 
democracy.      They    provided    for    faculty    control  —  faculty    initiative-, 


394  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

faculty  referendum,  faculty  recall,  faculty  veto.  They  provided  for 
everything  except  information  without  which  all  of  the  other  wheels 
within  wheels  a  la  Soviet  Russia  would  be  inellcctive  for  democracy  and 
certain  guarantees  of  autocracy. 

Another  illustration  was  furnished  by  the  teaching  load  blanks  filled 
out  by  members  of  the  five  faculties.  The  advertised  purpose  of  these 
blanks  was  "to  substitute  fact  for  estimate  in  seeking  equitable  loads, 
adequate  salaries  and  best  organization  within  the  universities  and  nor- 
mals." The  typical  errors  here  cited  throw  light  on  the  need  for  con- 
tinuous self-training  in  administrative  research.  They  also  show  the 
need  for  having  all  information  that  comes  before  faculties  proved  and 
tested  and  quickly  distributed  prior  to  discussion  and  action : 

I  —  Omitting  number  of  sections,  number  of  courses,  number  of 
students,  course  number. 
-     2  —  Claiming  six  courses  taught  and  giving  information  about  two. 

3  —  Giving  total  number  of   students  as  the  student  periods  ir- 

respective of  the  number  of  times  classes  met,  thus  greatly 
understating  the  student  periods. 

4  —  Reporting  the  number  of  sections  as  the  student  periods,  for 

instance,  15  student  periods  where  there  were  actually  719. 

5  —  Entering  the  number  of   minutes   for  class   recitation  as  the 

number  of  student  hours. 

6  —  Failing  to  count   120  minutes  per  student  as  two  periods  in 

figuring  the  student  periods. 

7  —  Failing  to  report  student  periods  although  equitable  distribu- 

tion is  impossible  without  definite  facts  about  student  periods. 

8  —  Omitting  all  totals  or  incorrectly  adding  them. 

Five  additional  suggestions  relating  to  conduct  of  faculties  after 
they  are  organized  are  submitted  for  consideration  by  Ohio  faculties 
and  trustees : 

1  —  That  trustees  keep  faculties  informed  by  holding  only  public 

meetings  announced  in  advance;  by  issuing  calendars  of  steps 
to  be  taken  up;  by  making  available  to  faculties  whatever  in- 
formation is  made  available  to  trustees  respecting  faculties 
through  printed  or  mimeographed  statements;  and  by  sending 
minutes  of  trustee  actions  to  faculty  members  both  indirectly 
through  faculty  committees  especially  concerned  and  to  the 
entire  faculty. 

2  —  That   executive   officers   and    faculty    committees    use    similar 

methods  to  keep  faculties  informed  with  respect  to  proposals, 
discussions  and  actions  which  concern  them. 

3  —  That  when  vacancies  are  to  be  filled  in  presidency,  deanship 

or   business    managership,    the    trustees  —  without    delegating 


ON    ADMINISTRATIVE  REORGANIZATION  395 

responsibility  for  final  selection  and  without  binding  them- 
selves to  act  within  proposals  made  by  faculties  —  seek 
faculty  information  and  advice  by  asking  faculties  to  submit 
their  conception  of  the  work  involved  and  of  the  type  of  ex- 
perience and  personality  needed  for  the  work,  and  to  send 
names  of  persons  within  or  without  the  faculty  regarding 
whose  work  and  personality  officers  and  trustees  would  profit- 
ably seek  definite  information. 
4  _  That  the  annual  report  of  the  president  for  the  entire  institu- 
tion contain,  as  Miami's  report  now  contains,  a  summary  of 
principal  faculty  actions  during  the  preceding  year;  at  Ohio 
State  University  this  would  mean  a  summary  for  college  facul- 
ties as  well  as  for  the  university  faculty. 

5 That  younger  faculty  members  be  welcomed  and  expected  at 

faculty  and  departmental  meetings  which  discuss  educational 
policies,  —  and  no  other  issues  can  properly  come  before  whole 
faculties. 
Drawing  the  younger  instructors  into  the  union  is  needed  in  fair- 
ness both  to  the  men  themselves  and  to  the  future  of  the  in- 
stitution. Anyone  who  is  qualified  to  teach  students  is  quali- 
fied to  participate  in  faculty  meetings.  In  the  few  cases  where 
younger  instructors  show  bad  taste  or  tactlessness,  such  action 
at  faculty  meetings  would  throw  light  upon  disqualifications 
that  call  for  institutional  attention.  Talking  without  having 
anything  to  say  is  not  peculiar  to  youth  or  to  low  faculty  rank. 
Any  means  which  will  disclose  such  a  propensity  early  before 
it  has  been  permanently  attached  to  the  faculty  will  tend  to 
strengthen  faculties. 


REMUNERATIVE  WORK  BY  FACULTIES 

"Commercializing  Our  State  University"  is  the  title  of  an  article  in  a 
daily  newspaper  signed  "Old  Grad"  which  asked  your  committee  to  in- 
vestigate the  outside  work  done  by  professors.  It  was  charged  that 
there  were  professors  "who  were  commercializing  this  great  institution 
and  who  are  spending  on  outside  work  much  of  the  time  which  they 
should  be  spending  in  teaching  students,  thus  netting  large  financial  gain 
by  virtue  of  being  connected  with  the  university."  It  was  further  urged 
that  the  legislature  "pass  laws  making  it  necessary  for  the  professors  to 
attend  strictly  to  university  work  only." 

The  facts  regarding  outside  remunerative  work  by  99  full  professors 
at  Ohio  state  university  are  these :  only  18  out  of  99  reported  any  time 
and  these  gave  in  one  week  a  total  of  138  hours,  equivalent  to  a  little 
over  three  full  weeks  for  one  man. 


396  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

3  gave  less  than  an  hour  during  the  week, 
I  gave  from  2  to  3  hours, 

3  gave  from  3  to  4  hours, 
I  gave  from  5  to  6  hours, 

4  gave  from  6  to  8  hours, 
6  gave  over  8  hours. 

In  view  of  the  difficult)^  experienced  to  make  both  ends  meet  with 
present  salaries,  it  is  surprising  that  so  few  faculty  members  reported 
time  given  to  outside  remunerative  work. 

It  is  regrettable  from  the  standpoint  of  instruction,  research,  service 
to  the  state  and  ability  to  inspire  that  so  small  a  proportion  of  full  pro- 
fessors at  Ohio  state  university  have  such  relation  with  the  world's  work 
outside  of  college  walls  that  they  are  privately  consulted  and  employed. 

Instead  of  legislating  against  outside  remunerative  work  by  faculty 
members  the  state  would  better  encourage  such  work,  so  far  as  promo- 
tion of  university  service  permits. 

The  worst  possible  w^ay  to  deal  with  the  chance  that  faculty  mem- 
bers will  neglect  university  work  for  outside  work  is  to  prevent  outside 
work  that  will  help  vitalize  university  work. 

Failure  to  try  to  earn  or  failure  to  have  facilities  which  include  in- 
vitations for  outside  employment  may  mean  more  serious  impairment 
of  teaching  service  to  the  state  than  can  outside  earnings  whether  large 
or  small. 

Services  rendered  to  university  or  college  must  be  tested  by  what 
happens  to  university  or  college  rather  than  by  what  is  done  outside. 
This  calls  for  a  kind  of  information  heretofore  lacking  as  to  what  goes 
on  in  the  classroom  and  what  is  done  for  students  by  institutions  inside 
and  outside  of  classes. 

If  service  to  the  state  can  be  proved  satisfactory  it  is  obviously 
profitless  for  university  and  college  to  worry  about  outside  remunerative 
employment. 

If  service  is  unsatisfactory  the  state  will  not  care  whether  there  is 
outside  work  and  whether  it  is  paid  or  voluntary  but  will  give  attention 
to  what  is  done  for  the  state. 

Whether  faculty  service  is  satisfactory  or  not  can  be  found  by  watch- 
ing the 'service. 

With  respect  to  faculty  employment,  including  the  possibility  of  out- 
side remunerative  employment,  it  is  suggested : 

1  —  That   the   arrangement   between   the   university   and    each    in- 

structor  specify  a   regular  schedule   for  appointments  of   in- 
structor with  students. 

2  —  That  a  current   record   show   which   appointments  have  been 

kept,  which  appointments  have  not  been  kept,  and  the  reason. 


ON    ADMINISTRATIVE   REORGANIZATION  397 

3  —  That  written  explanations  be  filed  with  deans  on  blanks  pro- 

vided by  the  business  office  not  only  for  protracted  absence, 
but  for  all  absences,  to  include  those  for  which  no  substitutes 
are  provided. 

4  _  That  for  the  period  of  a  year  the  total  cost  to  the  university 

of  absences  recorded  be  computed  at  the  rate  which  the  uni- 
versity pays  each  instructor  in  question  for  the  number  of  ap- 
pointments missed,  in  order  that  the  university  may  know  from 
its  own  experience  whether  salary  deductions  should  be  made 
for  absences  and  what  maximum  number  of  absences  may  be 
allowed  without  salary  deduction. 
2  —  That  when  absences  are  granted  to  individuals  for  the  purpose 
of  representing  the  university,  or  serving  the  university,  at 
national  or  state  conventions,  two  steps  be  taken  to  secure  re- 
sults commensurate  with  the  cost  to  the  university:  that  two 
reports  be  required  for  administrative  offi;cers  and  regents  — 
one  written  report  of  suggestions  received  for  the  university 
to  be  recorded  with  administrative  officers  and  regents  ;  and  one 
written  report  as  to  how  absence  has  been  used  by  the  indi- 
viduals in  question  for  the  improvement  of  their  own  work  or 
that  of  their  department. 

Some  universities  have  gone  so  far  as  to  require  that  no  member 
of  the  instructional  staff  may  make  arrangements  with  outside  agencies, 
private  or  public,  for  a  portion  of  their  time  in  return  for  a  fee,  salary  or 
honorarium  without  first  informing  the  dean  in  order  that  when  necessary 
the  approval  of  the  president  or  trustees  may  be  requested.  This  is  a  fair 
requirement  which  might  well  be  considered  by  the  trustees  of  Ohio  in- 
stitutions. Faculty  members  will  readily  see  that  more  damage  will  re- 
sult from  unfounded  suspicion  than  from  recorded  fact.  If  too  low 
salaries  is  a  reason  for  taking  on  "pot-boiling"  remunerative  work  the 
massing  of  evidence  against  such  pot-boiling  will  help  secure  adequate 
sialaries.  If  desire  to  become  identified  with  world  work  that  needs 
to  be  done  promptly  and  correctly  is  the  reason  for  taking  on  outside 
employment  a  record  of  such  desire  will  point  the  way  to  methods  of 
vitalizing  and  motivating  all  instruction. 

One  type  of  remunerative  work  by  faculty  members  should,  it  is 
suggested,  give  way  to  non-remunerative  work  by  the  institution  itself. 
namely,  technical  service  to  state  departments  or  to  the  university  itself. 
At  present  the  university  itself  pays  for  analysis  of  building  materials 
and  state  departments  pay  for  analysis  of  coal,  for  example. 

In  fact,  the  chief  reason  given  by  the  board  of  administration  for 
not  taking  current  samples  of  coal  for  its  many  institutions  to  see 
whether  specifications  are  complied  with  is  that  the  university  charges 


398  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

SO  much  for  analysis.  These  payments  now  go  to  faculty  members  with 
whom  the  universit}-  has  made  special  arangements. 

It  is  suggested  that  the  legislature  arrange  for  the  university  through 
its  technical  departments  to  render  technical  service  to  the  state  as  an 
institution,  the  money  recognition  of  such  service  to  be  in  the  form  of 
additional  appropriations  to  the  university  rather  than  cash  payment  to 
individual  faculty  members. 

This  substitute  procedure  would  build  up  departments  and  depart- 
ment prestige.  It  would  secure  funds  for  expansion  and  for  research. 
It  would  increase  the  state's  appreciation  of  the  university.  An  even 
more  important  gain  than  any  or  all  of  the  others  would  be  that  it 
would  encourage  the  use  of  students  in  rendering  service  to  the  state, 
would  interest  students  irt  the  applications  of  their  studies  to  state  wel- 
fare, and  would  gradually  lead  to  providing  in  the  curriculum  for  services 
to  the  state. 

The  University  of  Cincinnati's  students  of  engineering  work  in  the 
chemical  laboratories  of  the  city  department  of  health,  one  week  in  the 
laboratory  and  one  week  in  the  university.  The  state's  need  for  chemical 
and  engineering  services  which  the  university  could  render  through 
students  would  provide  invaluable  laboratory  material  and  character 
building  for  Ohio's  students. 

By  such  relation  as  is  here  suggested  Toledo's  Municipal  University 
has  greatly  increased  its  moral  and  financial  support.  In  its  budget 
estimates  and  annual  statements  it  frankly  bases  its  appeal  for  public 
support  on  the  many  ways  in  which  it  is  helping  the  city  council,  public 
officials  and  citizens  deal  intelligently  with  public  problems  calling  for 
technical  analysis. 

How  Ohio  state  university  has  already  benefited  and  wishes  still 
further  to  benefit  its  students  by  giving  them  training  via  rendering 
service  to  the  state  is  summarized  in  the  following  letter  from  the  de- 
partment of  civil  engineering: 

"Apropos  of  your  address  before  the  College  of  Engineering  yesterday,  permit 
me  to  suggest  that  the  Department  of  Civil  Engineering  at  Ohio  State  University 
would  like  to  continue  and  extend  its  services  to  the  state.  We  have  already  used 
the  students  in  this  department  to  do  the  following  state  work: 

1.  Surveyed  and  Mapped  Fort  Ancient   for   the   State  Archaeological   and 
Historical  Society. 

2.  Surveyed   Buckeye  Lake    (S    houndary)    for   the    State   Department   of 
Public  Works. 

3.  Surveyed  Lake  Loramie  for  the  same  State  Bureau. 

4.  Surveyed    and    Mapped    the    State   Fair    Grounds    for    State    Board    of 
Agriculture. 

5.  Surveyed  State  Prison  Grounds  at  London  for  Board  of  Administration. 

6.  Surveyed    and   Mapped   Ohio    State   University   grounds    for   Board    of 
Trustees. 

7.  Made  road   surveys   for  State  Highway  Department. 

8.  Made  Road  Maps  of  88  counties  of  Ohio  for  State  Highway  Depart- 
ment. 


ON   ADMINISTRATIVE   REORGANIZATION  399 

"The  foregoing  state  work  was  done  by  our  civil  engineering  students  during 
summer  vacations,  working  under  direction  of  our  civil  engineering  instructors. 
Instead  of  making  up  practice  camps  as  they  do  at  other  universities,  we  have 
accomplished  some  real  and  useful  work  each  summer  with  the  students  and 
would  like  to  keep  it  up  if  you  can  give  us  the  chance. 

"We  have  received  compensation  enough  on  each  task  to  pay  expenses  and 
a  small  salary  to  each  student,  but  at  that,  the  work  was  done  for  the  state  much 
cheaper  than  others  could  do  it,  and  the  work  has  all  been  of  high  grade. 

"When  no  state  work  offered,  we  have  made  real  and  useful  surveys  during 
the  summers  for  cities,  counties,  corporations  and  in  one  case,  for  the  United 
States  in  Yellowstone  Park. 

*     *     * 

"This  department  has  already  done  much  state  work,  and  is  anxious  to  do 
more.  We  are  especially  interested  in  investigations  and  would  like  to  study  the 
highway  materials  of  the  state,  but  our  highway  materials  testing  apparatus  had 
to  be  turned  over  to  the  Highway  Department  some  time  ago  because  they  had 
not  enough  apparatus  then  and  have  not  enough  now.  Our  worst  need  now  is 
for  extension  of  this  equipment  and  of  other  equipment  for  studying  highway 
problems,  for  which  an  addition  to  this  crowded  building  (Brown  Hall)  is  very 
badly  needed." 


NON-REMUNERATIVE   DIVERSION   OE   FACULTY   ENERGY 

A  detailed  study  would  doubtless  show  that  Ohio  institutions,  like 
other  universities  and  colleges,  suffer  far  less  because  of  outside  remun- 
erative absences  from  work  by  president,  deans,  directors,  department 
heads  and  instructors. 

Wherever  regulations  and  agreements  do  not  specifically  account  for 
time  spent  away  from  their  work  by  college  officers  neither  trustees  nor 
executive  officers  can  tell  if  absences  are  over-done. 

A  partial  check  on  absences  is  now  kept  by  the  requirement  that  no 
one's  expenses  may  be  paid  for  a  convention  outside  of  the  state  unless 
approved  in  advance  by  the  emergency  board  which  consists  of  the  gov- 
ernor, auditor,  attorney  general  and  chairman  of  the  house  and  serfate 
finance  committees.  Many  faculty  members  pay  their  own  expenses, 
rather  than  ask  a  privilege  of  the  emergency  board. 

If  executive  officers  pay  their  own  expenses  outside  the  state  their 
absences  are  subject  to  no  review.  No  absences  within  the  state  are 
subject  to  a  review\ 

Whether  a  faculty  member  dismisses  class  or  holds  two  classes  on 
one  day  in  order  to  free  his  time  for  absence  on  another  day  is  not  now 
a  matter  of  record. 

The  subject  is  mentioned  here  not  to  propose  a  solution  but  to  em- 
phasize the  fact  that  where  no  effort  is  made  to  test  the  benefits  of 
absences  from  college  duty  by  officers  or  faculty  members  there  will 
usually  be  much  greater  loss  due  to  non-remunerative  absences  than  to 
outside  remunerative  work:  and  that  diversions  of  energy  for  outside 


400  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

non-remunerative  work  are  frequently  far  mpre  costly  and  far  less  pro- 
ductive than  remunerative  outside  work. 

A  bureau  of  administrative  research  could  use  information  respecting 
time  given  to  outside  work,  opportunities  for  it  and  benefits  from  it  in 
ways  that  would  be  so  helpful  to  the  faculty  that  reports  could  easily  be 
obtained  and  courses  of  study  be  modified  to  require  more  and  more  use 
of  the  world's  laboratories  via  work  needing-  to  be  done. 


INTERCHANGEABLE  CREDIT  FOR  WORK  IN  OHIO 
SCHOOLS 

The  need  for  any  and  every  step  which  will  foster  the  recruiting  of 
teachers  is  reason  enough  for  a  state  law  which  will  recognize  credit  for 
credit  by  state  colleges  no  matter  by  whom  credentialed  or  to  whom 
offered  for  credit. 

As  stated  in  the  reason  for  abandoning  the  present  practice  of  dis- 
counting a  year's  work  in  the  county  normal  schools  when  graduates 
present  themselves  for  credit  at  other  normal  schools  or  Ohio  state  uni- 
versity's colege  of  education,  the  businesslike  remedy  for  deficient  stand- 
ards is  to  raise  the  standards  by  proper  supervision  and  not  to  check 
the  flow  of  students. 

The  work  done  by  Miami  university  is  work  done  by  and  for  the 
state  of  Ohio.  The  same  is  true  of  work  done  at  Columbus,  Athens, 
Bowling  Green,  kent  a4id  the  35  places  that  now  have  county  normal 
schools.  If  an  individual  comes  unprepared  the  remedy  is  to  dismiss 
that  individual  or  put  him  on  probation  and  is  not  to  raise  the  bars 
against  the  whole  state  institution  from  which  he  comes.  If  evidence 
accumulates  that  a  particular  school  is  lax  and  that  its  certificate  cannot 
be  taken  safely  at  face  value,  the  remedy  is,  through  publicity,  through 
correspondence  and  through  dismissal  of  unable  students,  to  make  that 
institution's  certificate  mean  what  it  says. 

Occasionally  —  not  as  often  as  would  be  well  for  education  —  some 
institution  will  break  loose  from  tradition  and  insist  upon  making  an 
experiment.  For  example,  at  present  Kent  normal  college  has  for  some 
subjects  a  shorter  recitation  period  than  Bowling  reen  normal  college 
or  the  three  universities.  Other  institutions  claim  that  a  student  who 
has  had  thirty  periods  of  forty-five  minutes  each  cannot  have  covered 
as  much  ground  as  satisfactorily  as  that  same  student  or  another  student 
whose  thirty  periods  have  been  ten  minutes  longer  each. 

Only  on  the  assumption  that  student  benefits  from  instruction  is 
commensurate  with  the  time  he  recites  or  hears  others  recite  does  this 
claim  hold  good.  If  student  benefit  depends  more  upon  the  time  he 
studies  out  of  class  than  upon  the  time  he  recites  or  listens  in  class,  then 


ON   ADMINISTRATIVE  REORGANIZATION  40t 

the  length  of  the  period  is  no  fair  test  of  benefit.  What  the  student  gets 
from  a  course  and  gives  to  it  probably  has  much  less  relation  to  the  length 
of  period  than  many  other  factors,  and  can  be  told  only  by  quite  different 
tests  of  his  development. 

So  long,  however,  as  hour  measure  is  used,  it  is  possible  to  reduce 
forty-five  minute  periods  and  fifty-five  minute  periods  to  comparable 
values.  This  is  obviously  the  thing  for  sister  state  institutions  to  do 
rather  than  to  refuse  reciprocal  relations  because  the  periods  are  of 
different  lengths. 

A  still  more  important  duty  resting  upon  the  state  department  of 
public  instruction  is  to  find  out  by  actual  tests  for  what  pupils  and  sub- 
jects a  forty-five  minute  period  is  more  productive  than  a  longer  period. 


ANNUAL  REPORTS  AND  CATALOGUES  OF  OHIO  EDUCA- 
TIONAL INSTITUTIONS 

As  part  of  the  operating  audits  by  the  auditor  of  state  which  have 
been  recommended  in  various  reports  to  your  committee  there  should  be 
included  the  audit  of  publicity  methods  employed  by  state  educational 
institutions. 

Likewise,  an  exacting  audit  should  be  given  by  the  budget  commis- 
sioner when  considering  and  before  allowing  requests  for  printing  and 
for  subordinate  activities  that  are  not  largely  patronized. 

Two  more  audits  should  be  made  of  publicity  methods  used  by  edu- 
cational institutions,  one  by  each  institution  through  its  own  division  of 
administrative  research  and  efficiency  and  second,  by  the  state  department 
of  public  instruction. 

The  reason  for  the  persistence  of  obsolete  methods  of  advertising  by 
normal  schools  and  universities  is  that  audits  of  publicity  have  been  lack- 
ing. In  another  state  when  the  head  of  a  teacher  training  institution 
was  asked  what  percentage  of  his  constituency  could  understand  a  certain 
paragraph  which  described  a  course  for  teaching  given  by  himself,  he 
answered:  "A  negligible  percentage".  Asked  whom  he  had  in  mind 
when  he  wrote  the  paragraph  and  other  parts  of  the  catalogue,  he 
answered :  "My  colleagues  at  Oberlin  and  Harvard."  Catalogue  making 
and  report  making  suffer  from  this  failure  to  picture  first  and  foremost 
the  audience  that  is  to  be  reached. 

A  second  reason  for  too  little  imagination  and  too  little  skill  in  de- 
scribing what  institutions  offer  is  that  the  support  of  state  institution-^ 
has  had  no  direct  relation  to  reporting.  Even  among  private  colleges 
where  substantial  support  comes  from  endovv/ment  or  from  appeals  to  a 
few  rich  persons  the  educational  importance  of  proper  catalogue  and  re- 
port making  has  been  slighted.     Scores  of  private  colleges  might  easily 


402  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

have  found  the  funds  for  increasing  their  instructors'  salaries  by  pub- 
licity methods  that  would  have  increased  the  number  of  students  at  the 
old  tuition  rate  or  have  kept  the  same  number  of  students  at  a  willingly 
paid  greatly  increased  tuition  rate. 

A  third  explanation  for  the  almost  repelling  character  of  much 
catalogue  making  and  reporting  is  that  Ohio's  state  institutions,  excepting 
the  two  normal  colleges  at  Bowling  Green  and  Kent,  have  had  about 
all  the  students  they  could  easily  take  care  of.  Why,  therefore,  concern 
themselves  with  the  tens  of  thousands  of  young  people  in  their  district 
who  are  eligible  to  admission  and  some  of  whom  might  be  led  to  take 
advantage  of  university  offerings  if  these  were  attractively  described? 

The  current  Ohio  university  catalogue  is  a  volume  of  204  pages 
plus  cover.  Beginning  at  the  first  cover  the  not-yet  enlisted  student  has 
to  read  or  thumb  over  22  pages  before  he  finds  anything  that  directly 
concerns  himself..  The  inside  cover  names  the  board  of  trustees;  pages 
2  and  3  give  the  calendar;  pages  4  to  13  name  the  faculty  and  faculty 
deans;  pages  14  to  18  give  the  origin  of  the  university  beginning  with 
the  Treaty  of  Paris,  September  3,  1783;  then  follow  half  a  page  about 
the  location  and  three  pages  briefly  stating  the  number  of  buildings  and 
their  purpose,  the  names  of  the  colleges,  summer  school  and  extension 
department.  If  the  student  starts  from  the  back  cover  he  thumbs  over 
fiist  40  pages  which  give  the  names  of  people  whom  he  does  not  know, 
their  home  addresses  and  an  index.  A  prospectus  for  a  private  business 
college  or  for  an  oil  mine  in  Texas  or  for  one  of  Ohio's  many  industnes 
needing  additional  capital  does  not  wait  so  long  before  making  a  direct 
appeal  to  the  prospective  patron. 

In  this  volume  of  204  pages  no  student  is  photographed  and  no 
building,  no  campus  trees  or  walks.  In  fact,  there  is  not  a  word  for 
the  possible  but  undecided,  not-yet-landed  student  except  a  couple  of 
sentences  describing  location  which  if  made  more  prominent  would  be 
good  sellers,  namely,  "Lovers  of  nature  certainly  cannot  fail  to  be 
charmed  with  its  picturesque  surroundings.  The  sanitary  arrangements 
of  the  city  are  unsurpassed."  Many  catalogue  makers  are  differentiating 
between  the  obtained  patron  and  the  hesitant  patron  and  are  issuing 
a  catalogue  in  sections  fitted  to  the  relations  of  catalogue  maker  and 
catalogue  reader.  This  has  the  advantage  of  not  only  being  more  inter- 
esting for  the  reader,  but  of  saving  print  paper,  printing  and  postage. 

When  it  comes  to  describing  Ohio  university  courses  themselves. 
the  student's  interest  and  ability  to  choose  are  taken  for  granted.  That 
the  liberal  arts  course  will  help  a  man  in  business  is  stated,  as  is  the 
possibility  of  saving  time  for  law  or  medicine  or  engineering  by  selecting 
certain  arts  courses.  But  why  anybody  should  want  to  be  an  engineer,  or 
lawyer,  or  business  man  or  teacher  and  what  types  of  personality  and 
previous  training  should  avoid  or  seek  either  profession  are  not  stated. 
Although  there  is  a  dearth  of  trained  chemists  and  although  the  whole 


ON    ADMINISTRATIVE   REORGANIZATION  4O3 

country  was  aroused  by  the  war  to  the  importance  of  chemistry  to 
American  industry,  this  course  is  introduced  in  the  catalogue  by  giving 
the  names  of  four  instructors  and  a  paragraph  which  begins  as  follows : 
"The  aim  of  the  chemical  department  is  two-fold ;  it  offers  to  the  general 
student  the  opportunity  of  becoming  acquainted  with  the  principles  of 
this  science  and  gives  him  practice  in  some  of  the  methods  used  in  a 
chemical  laboratory."  Why  anybody  should  study  chemistr)%  what  he 
can  do  with  it  in  business  or  what  a  liberally  trained  man  or  woman 
can  do  with  it  in  daily  living  is  not  stated. 

In  the  same  way  the  reporting  of  universities  has  an  important 
bearing  upon  the  ability  of  these  institutions  to  serve  Ohio.  Not  only 
the  officers  should  be  encouraged  to  tell  their  story  of  service  in  a  way 
that  will  interest  the  people  of  Ohio,  but  in  addition  Ohio's  state  organiza- 
tion for  auditing,  for  criticizing,  for  advising  best  practices  and  for  sug- 
gesting improvements  should  be  such  that  the  annual  reports  of  educa- 
tional institutions  will  be  an  important  part  of  the  state's  university  ex- 
tension work. 

Difterences  in  methods  of  analysis  and  of  publicity  expressed  in  the 
reports  of  the  three  state  universities  show  the  importance  of  giving  a 
new  significance  to  these  annual  statements.  The  last  published  report 
of  Miami  university  begins  with  mention  of  students,  1027  of  them,  a 
gain  of  28.8%;  the  second  section  lists  i6  gains;  the  third  section  lists 
13  needs  and  possible  gains. 

With  respect  to  none  of  these  points,  students,  gains,  and  needs 
can  the  three  universities  supported  by  the  public  be  compared.  Ohio 
university  and  Ohio  state  university  fail  in  their  reports  to  give  any 
indication  of  self-study  or  administrative  self-analysis  that  is  so  obvious 
and  encouraging  a  feature  of  the  Miami  report.  Moreover,  field  examina- 
tion as  stated  in  another  section  of  this  report  shows  that  these  uni- 
versities actually  lack  such  administrative  self-analysis  as  enables  Miami 
university  to  present  the  following: 

1  —  The  numerical  and  percentage  gain  in  each  class  of  students. 

2  —  The  relative  gains  and  losses  of  men  and  women. 

3  —  A  comparison  of  total  enrollment  with  actual  attendance  by 

graphs. 

4  —  The  withdrawals  during  the  year. 

5  —  The  average  weekly  attendance  and  the  relation  of  average 

.  attendance  to  enrollment. 
6 — Scholarship  averages  and  gains  (i6  points). 
y  —  Needs  and  possible  gains  including  the  opportunities  for  private 

gifts  (13  points), 
8  —  Important  official  actions  of  the  faculty. 
9 — i  A  scale  for  valuing  services  of  instructors  (22  points  under  six 

heads) . 


404  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

10  —  The  permanent  influence  of  the  S.  A.  T.  C.  on  the  college. 

1 1  —  Scholarship  of  secret  society  students. 

12  —  Results  of  the  students'  adviser  system. 

13  —  Reason  for  a  monthly  inspection  of  student  houses. 

14  —  Department  recommendations. 

15  —  Positions    filled    by    employment    committee,    with    class    and 

salary. 

16  —  Analysis  of  subjects  taught  by  2,002  teachers  in  high  schools 

as  a  guide  to  teacher  preparation. 

17  —  Analyses  of   statistical   tables  and  comparisons  of   term  with 

terms. 

18  —  Student  absences. 

19  —  Lessons  learned  from  study  of  institution  economics,  board- 

ing halls,  etc. 

20  —  Audit  of  student  organization  accounts. 

21 — Work  done  on  buildings  and  grounds  and  work  needed  next 
year. 

22  —  Instructional  hours  of  recitation  and  laboratory,  and  men  and 

women  students  of  each  instructor  each  term. 

23  —  Analysis  of  grades  given  by  each  instructor. 

24  —  The  teaching  load  carried  by  each  instructor. 

25  —  The  scholastic  ranking  of  freshmen  in  each  semester. 

26  —  Schools  from  which  freshmen  entered. 

27  —  Recorded  use  of  library  books. 

28 — Frequent  challenge  of  the  premises  upon  which  work  is  being 
done  and  suggestion  of  improvements. 

For  example,  Ohio  state  university's  report  for  the  year  ending 
June  30,  1919,  opens  with  three  and  a  half  pages  with  respect  to  trustees 
and  faculties,  obituaries  and  testimonials  that  are  important,  but  never- 
theless lack  the  appeal  necessary  to  arouse  and  feed  interest.  Two  more 
pages  are  given  to  enrollment  and  decrease  without  comparisons  to  show 
the  important  fact  that  in  this  after-war  year  there  had  been  an  in- 
crease of  675  students  which  portended  an  enormous  increase  the  fol- 
lowing year. 

Nowhere  is  there  a  list  of  advanced  steps  taken  or  gains  made,  and 
of  needs  not  yet  met.  The  president's  report  to  the  trustees  is  less 
than  twelve  pages,  of  which  less  than  nine  are  editorial,  less  than  five 
a  report  on  the  university's  activities,  and  less  than  one  of  ref-erence  to 
after-war  responsibilities.  While  in  the  reports  of  deans  there  are 
important  facts  and  suggestions,  they  are  lost  for  lack  of  emphasis. 
Had  the  reports  been  considered  a  splendid  opportunity  for  educational 
work  rather  than  as  a  traditional  "compliance  required  by  law",  telling 
use  might  have  been  made  of  such  excerpts  as  these  from  reports 
of  deans : 


ON   ADMINISTRATIVE   REORGANIZATION  405 

1  —  "The  tendency  of  American  students  —  graduate,  undergrad- 

uate and  professional  —  to  measure  their  progress  by  the 
number  of  credits  they  have  earned  is  deplored  by  the  ju- 
dicious. But  a  much  more  fundamental  remedy  must  be 
found  than  the  additional  examination  at  the  close  of  the 
work.  When  found  it  will  probably  prove  to  be  not  an  added 
piece  of  machinery  but  more  inspirational  teaching."  J.  V. 
Denney,  dean  of  arts. 

2  —  "As  soon  as  funds  can  be  provided  the  two  recently  author- 

ized bureaus  of  business  research  and  social  research  should 
be  organized  as  it  is  very  important  that  the  university  should 
give  the  kind  of  service  which  these  bureaus  were  created  to 
render."    J.  E.  Hagerty,  dean  of  commerce  and  journalism. 

3  —  "Our  dental  students  gave  good  service  to  the  work  at  the 

girls'  industrial  home."  Harry  M.  Semans,  dean  of  the 
college  of  dentistry. 

4 — "There  is  lack  of  space  and  equipment  in  all  branches  of 
chemistry.  .  .  .  58%  of  engineering  students  passed  all 
their  academic  work."  E.  F.  Coddington,  acting  dean,  col- 
lege of  engineering. 

5  —  "A  veterinary  experiment  station  for  original  research  espe- 
cially along  the  lines  of  applied  pathology  and  bacteriology  is 
greatly  needed.  .  .  ,  The  veterinary  hospital  treated 
6,289  cases  besides  1,867  cases  treated  in  the  out-patient 
clinic.  The  clinics  have  been  self-supporting."  David  S. 
White,  dean  of  the  college  of  veterinary  medicine. 

By  the  time  this  report  became  available  Ohio  state  university 
found  itself  overwhelmed  with  students,  under-manned  with  instructors 
and  beset  with  unrest  because  of  too  low  salaries.  Not  only  were  ill- 
equipped  candidates  for  teaching  positions  added  to  the  faculty,  but 
graduate  students  in  recitation  and  even  under-graduate  students  were 
drafted  as  assistants.  Yet  there  is  not  a  word  in  any  one  of  the  reports 
calling  attention  to  the  probability  of  a  largely  increased  register,  and 
warning  the  people  of  the  state  that  salary  increases  and  emergency 
appropriations  would  be  indispensable.  Dean  Vivian  of  the  department 
of  agriculture  reported  that  "several  n\embers  of  our  faculty  have  found 
it  necessary  to  resign  to  accept  commercial  positions,  in  most  cases  at 
very  slightly  increased  salary."  While  at  first  glance  this  seems  an 
exception  to  the  earlier  statement  that  the  need  for  salary  increases 
was  omitted,  it  will  be  noted  that  the  net  effect  of  the  paragraph  is  to 
indicate  other  causes  than  salary  increases  for  the  condition  of  affairs 
which  Dean  Vivian  found  alarming. 

Pages  48  to  143  are  given  to  financial  statements,  lists  of  names, 
credit  hours  and  students  in  course,  the  total  number  of  degrees  con- 


406  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

ferred  since  the  founding  of  the  university,  the  students  in  the  joint 
technical  and  professional  course,  names  of  students  receiving  degrees 
and  certificates  in  1919,  and  14  pages  of  student  army  training  corps 
statistics.  None  of  these  tables  is  analyzed  for  lessons.  There  is  no 
graphic  presentation,  no  photograph,  no  typographical  aid  and  indenta- 
tion which  the  business  world  and  the  Miami  report  use  to  great  advan- 
tage; no  evidence  that  university  practice  elsewhere  has  been  studied; 
no  comparative  tables ;  in  a  word,  no  evidence  of  administrative  analysis 
or  of  attempt  to  use  the  report  for  throwing  light  upon  the  path  ahead 
and  for  giving  the  public,  legislature,  alumni  and  possible  donors  infor- 
mation with  which  to  think  straight  and  helpfully  about  this  great 
university. 

While  the  annual  report  of  Miami  university  is  in  many  respects 
a  notable  contrast  and  points  the  way  to  methods  of  studying  university 
problems,  frankly  discussing  and  efiFectively  presenting  them  for  all 
who  read  university  reports,  time  is  not  taken  here  to  illustrate.  It  is 
fair  to  emphasize  the  fact  that  the  defects  of  official  reporting  in  such 
as  are  above  mentioned  are  still  the  rule  in  educational  reporting 
throughout  the  country.  There  are,  however,  so  many  exceptions  and 
the  reasons  for  exceptions  are  so  obvious  that  the  opportunity  for 
improving  Ohio  state  university's  publicity  is  specially  pointed  out  in 
the  hope  of  helping  that  institution  and  other  institutions  which  are 
influenced  by  its  example. 

To  insure  continuing  helpfulness  of  criticism  and  suggestion  with 
respect  to  annual  reports  and  catalogues,  it  is  recommended  that  the 
state  department  of  public  instruction  be  given  authority  and  duty  to 
require  with  respect  to  minimum  essentials  which  it  shall  prescribe  a 
uniform  and  therefore  comparable  reporting  by  the  three  universities 
and  five  normal  colleges. 

NON-RESIDENT  STUDENTS  IN  OHIO  UNIVERSITIES 

In  the  first  semester  of  1919-1920  there  were  in  four  Ohio  schools  — 
Ohio  state  university,  Ohio  university,  Miami  university,  and  the  com- 
bined normal  and  industrial  department  at  Wilberforce — 1148  of  9269 
students  who  reported  themselves  as  non-residents  of  Ohio:  566  of  6608 
in  Ohio  state  university;  63  of  1023  in  Ohio  university;  138  of  1033 
in  Miami  university;  381  of  605  at  Wilberforce.  The  two  state  normal 
schools  at  Bowling  Green  and  Kent  report  no  non-resident  students. 

The  total  number  is  an  under-estimate  of  non-resident  students  be- 
cause a  large  number  who  have  not  acquired  legal  residence  in  Ohio 
register  from  an  Ohio  address. 

These  non-resident  students  now  pay  no  tuition.  They  pay  the 
same  fees  as  Ohio's  students  and  in  every  way  are  on  the  same  footing 
as  are  Ohio  students. 


ON    ADMINISTRATIVE  REORGANIZATION  407 

S^r  _ __..... _._■ ..^._ •..-■;.Lr^.   .:-^-■^'«  -  iUjr 

It  is  recommended : 

1  —  That  no  non-resident  students  be  admitted  to  the  freshman  and 

sophomore  years  at  Ohio  state  university. 

2  —  That  a  tuition  fee  be  charged  of  non-resident  students,  except- 

ing only  students  from  foreign  countries. 

3  —  That  the  legislature  fix  this  tuition  fee  instead  of  leaving  it 

with  the  individual  institutions  to  fix. 

4  —  That  the  auditor  of  state  be  charged  with  responsibility  for 

auditing  the  method  employed  by  each  institution  to  collect 
tuition  fees  from  non-residents. 

5  —  That  a  law  be  passed  declaring  that  legal  residence  may  not  be 

acquired  within  a  fixed  period  of  say  two  years  by  mere  at- 
tendance at  a  university. 

6  —  That   a   law   prohibit   the   acceptance   of   non-residents   in   a 

woman's  dormitory  until  adequate  accommodations  have  been 
made  for  Ohio  residents. 

7  —  That  acceptance  of  Ohio  non-residents  be  conditioned  upon 

there  being  room  Avithout  overcrowding  of  classes. 

8  —  That  if  a  .presumption  is  later  recognized  as  elsewhere  recom- 

mended against  classes  of  imder  ten,  the  number  shall  be 
counted  after  subtracting  non-residents. 

9  —  That  graduate  scholarships  within  the  control  of  the  state  be 

not  awarded  to  non-resident  students. 

10  —  That  the  standard  of  scholarship  for  admission  and  for  con- 

tinuance in  the  university  for  non-resident  students  even  after 
they  have  paid  tuition  be  fixed  at  '"good"  or  above  good  or 
"above  80". 

11  —  That  until  living  accommodations  have  been  greatly  improved 

at  Ohio's  state  university  no  out-of-state  student  be  regis- 
tered from  an  address  within  one  mile  of  the  university. 

12  —  That  at  Miami  and  Ohio  universities  preference  be  given  in  the 

dormitories  and  in  near-by  private  homes  to  resident  students. 

13  —  That  a  law  specifically  give  to  the  executive  of  each  institution 

the  power  and  duty  to  ask  withdrawal  of  a  non-resident  stu- 
dent whose  scale  of  expenditure  is  so  high  as  to  prove  demoral- 
izing or  injurious  to  Ohio's  students. 

Against  these  recommendations  several  arguments  have  from  time 
to  time  been  urged  by  educators.    They  are  taken  up  seriatim. 

I.  "It  is  a  matter  of  reciprocity  between  states.  If  we  give  free 
tuition  to  non-residents  their  state  gives  free  tuition  to  our  students." 
No  one  knows  how  many  Ohio  students  are  in  other  states.    It  is  known 


408  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

that  several  other  states  charge  tuition,  and  a  high  tuition,  considerably 
higher  than  the  total  fees  now  charged  in  Ohio.  There  is  no  reason  why 
Ohio  students  should  go  out  of  the  state.  It  is  unbusinesslike  to  trust 
to  chance  for  an  equitable  reciprocity. 

2.  "The  collections  are  not  worth  the  trouble."  It  is  true  that 
many  non-resident  students  will  give  wrong  addresses.  Ohio,  however, 
receives  their  high  school  records.  It  is  an  easy  matter  to  verify  their 
residence.  It  would  cost  but  an  infinitesimal  part  of  the  tens  of  thousands 
of  dollars  which  Ohio  ought  to  collect,  if  it  has  these  students. 

3.  "It  would  be  unfair  to  Ohio's  young  people  to  discourage  as 
would  tuition  fees  the  coming  of  out-of-state  students  with  different  and 
stimulating  backgrounds."  Experience  shows  that  tuition  does  not  de- 
crease the  number  of  out-of-state  students  although  it  may  change  the 
character  and  discourage  some  who  would  otherwise  come  just  because 
there  is  no  tuition.  There  is  reason  to  fear  that  the  value  of  these  for- 
eign backgrounds  is  greatly  exaggerated  or  at  least  the  value  of  the 
difference  between  advantages  from  such  background  where  there  is  no 
tuition  and  where  there  is  tuition. 

Ohio's  institutions  are  crowded,  greatly  over-crowded.  They  lack 
dormitory  and  boarding  facilities.  It  is  unfair  to  Ohio  young  people  to 
bring  them  into  communities  where  they  cannot  be  properly  housed  and 
fed.  The  disadvantages  of  losing  now  and  then,  or  losing  regularly 
an  out-of-state  student  are  very  small  compared  to  the  disadvantages  of 
paying  too  much  for  room  and  of  being  in  over-crowded  classes. 

There  is  another  very  important  consideration  in  support  of  a  high 
tuition  fee  and  of  the  foregoing  recommendations  which  frankly  advise 
placing  a  substantial  premium  upon  Ohio  institutions  for  Ohio  students, 
namely,  the  coming  of  out-of-state  students  in  considerable  numbers  has 
the  effect  of  concealing  failure  on  the  part  of  institutions  or  of  depart- 
ments within  institutions  to  establish  helpful  relations  with  Ohio  schools. 

For  example,  it  seems  narrowing  to  suggest  that  graduate  scholar- 
ships under  the  state's  control  go  only  to  Ohio  students.  Scholarship, 
we  are  told,  knows  no  state  boundaries.  Ohio  should  foster  ablest  minds 
from  whatever  source.  A  vastly  higher  standard  of  effort  and  attain- 
ment will  result  where  competition  knows  no  state  line.  In  a  sense  all 
of  these  arguments  are  valid.  The  fact  remains,  however,  that  Ohio 
maintains  its  institutions  primarily  for  the  sake  of  serving  Ohio  and  of 
giving  an  opportunity  to  Ohio's  young  people.  Where  there  is  not  a  pre- 
sumption in  favor  of  Ohio  students,  there  will  actually  exist  a  presump- 
tion and  a  practice  in  favor  of  non-resident  students  because  of  the  con- 
ditions which  bring  them  to  Ohio  institutions :  they  are  strangers ;  they 
come  from  afar;  they  especially  appreciate  courtesy  and  friendly  in- 
terest ;  their  appreciation  invites  special  attention  and  interest.  The  same 
scholarship  in  a  foreigner  will  receive  more  recognition  than  in  a  resi- 
dent.   The  most  important  consideration  is,  however,  that  the  list  of  elig- 


ON   ADMINISTRATIVE   REORGANIZATION  409 

ibles  for  scholarships  is  a  register  of  an  institution's  contact  with  its  own 
state.  It  is  more  important  for  Ohio  state  university  to  know  why  there 
is  not  Hvely  competition  of  scholarly  young  people  for  each  opportunity 
than  it  is  to  advance  a  particular  scholar. 

Again,  the  suggestion  that  non-residents  be  required  to  take  a  second 
choice  in  private  homes  available  for  rent  seems  unneighborly.  But  why, 
pray,  should  the  son  of  an  Ohio  farmer  be  forced  to  take  an  inferior 
room  at  an  inconvenient  distance  in  order  to  make  room  for  a  student 
from  Indiana  or  New  York? 

The  most  extreme  case  is  that  at  the  normal  and  industrial  depart- 
ment at  Wilberforce,  where  almost  two  out  of  three  students  are  non- 
residents. If  that  institution  were  voted  its  present  budget  of  $86,493 
and  had  only  194  total  of  Ohio  students,  the  governor,  auditor,  budget 
commissioner,  legislature  and  school  management  would  be  asking  "What 
does  this  mean  ?  Why  have  we  so  few  students  ?  Where  does  the  school 
work  fall  short?  Are  we  on  the  wrong  track  trying  to  do  the  wrong 
thing?"  These  questions  are  not  asked  now  because  the  relatively  small 
service  to  the  state  is  concealed  by  the  381  non-residents  who  produce 
a  condition  of  congestion  and  seeming  over- prosperity. 

In  the  homeopathic  school  the  total  register  of  29  is  small,  but  raises 
fewer  questions  than  the  figure  21  for  resident  students.  More  than  one 
in  four  of  this  very  small  register,  or  eight  in  all  out  of  29,  are  from 
other  states.  At  this  point  it  will  be  suggested  that  if  a  homeopathic 
medical  college  for  21  Ohio  men  is  to  be  maintained,  the  presence  of 
eight  non-resident  students  will  not  appreciably  add  to  the  cost.  In  this 
case,  this  is  true,  but  they  do  appreciably  subtract  from  the  burden  of 
proof  which  is  upon  the  university  for  maintaining  a  separate  college 
for  so  small  a  register. 

In  training  for  teachers  these  four  institutions  have  122  non-resident 
students  or  about  10%  of  the  total  register  in  education.  Although  only 
122,  they  are  just  122  obstructions  to  a  full  understanding  by  Ohio  of 
the  very  small  and  inadequate  number  of  students  in  training  for  its 
own  teaching  force. 

What  the  tuition  fee  should  be  at  each  institution  is  a  matter  for 
study  and  conference.  There  is  no  reason  whatever  for  fixing  a  figure 
below  $100  for  the  junior  and  senior  years  and  graduate  work  at  Ohio 
state  university.  The  269  in  the  junior  college  or  freshman  and  sopho- 
more years  ought  not  under  any  circimistances  to  be  admitted  at  a  time 
when  the  university  is  overwhelmed  and  its  standards  jeopardized  by 
lower  classmen.  The  122  in  normal  colleges  should  be  received  only  on 
pledge  to  teach  at  least  a  year  in  Ohio's  schools  for  each  year  of  instruc- 
tion, in  addition  to  paying  tuition. 

For  Miami  and  Ohio  universities  a  charge  of  at  least  $60  a  year 
would  seem  a  minimum.  The  superintendent  of  Wilberforce  combined 
normal  and  industrial  department  believes  that  a  charge  of  $50  in  ad- 


410  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

dition  to  the  fees  now  being  paid  would  not  materially  reduce  the  number 
of  out-of-state  students,  which  fact  would  make  even  a  higher  minimum 
desirable  because  the  only  justification  for  this  school  is  that  it  has  met 
an  Ohio  need. 

The  recent  enactment  that  these  four  institutions  be  allowed  to  in- 
crease salaries  provided  they  increase  fees  may  easily  cause  a  reduction 
in  the  number  of  Ohio  students  who  register.  If  fees  are  charged  by 
state  institutions  their  competitive  attractiveness  is  reduced  and  students 
encouraged  to  remain  nearer  home  in  private  colleges.  If  such  should 
prove  the  result  it  would  be  most  unfair  to  the  public  which  supports  state 
universities  to  have  the  presence  of  non-residents  conceal  the  reduction 
in  the  number  of  resident  students.  Yet  without  charging  a  special  non- 
resident tuition  fee  such  will  undoubtedly  be  the  result. 


OHIO  STATE  UNIVERSITY 

If  Ohio's  three  state  supported  colleges  are  considered  as  one  in- 
stitution, or  as  the  result  of  one  single  motive  to  provide  free  higher 
education,  Ohio's  registration  would  rank  third  among  the  forty-eight 
states.    Its  total  would  be  exceeded  by  only  California  and  Michigan. 

At  the  top  of  this  great  system  of  free  higher  education  is  the  Ohio 
state  university,  which  registered  /200  students  in  the  regular  school 
year  1919-1920,  and  1300  in  the  summer  of  1919.  This  central  university 
provides  professional  courses  in  education,  commerce  and  journalism, 
engineering,  law,  medicine,  dentistry,  optometry,  and  veterinary  medicine 
besides  extensive  undergraduate  and  graduate  courses  in  arts  and  science. 

The  sections  of  Ohio  from  which  these  students  come  are  shown 
on  the  service  spot  maps  for  the  registration  in  November  1919  and  for 
four  graduating  classes,  which  were  filled  out  by  Miss  Edith  H.  Cockins, 
registrar,  one  for  each  college,  one  for  the  whole  university,  and  one  for 
the  junior  college  registration.  To  facilitate  use  of  this  information  by 
citizens,  state  officers,  legislators  and  faculties,  Ohio  state  university  fur- 
nished not  only  the  maps  themselves,  but  photographs  in  duplicate  and  a 
set  of  slides. 

If  the  registration  increases  the  next  decade  as  it  has  the  last  decade 
this  central  institution  will  have  in  1930  about  15,000  students.  Where 
it  is  now  costing  about  one  million  and  a  half  a  year  it  will  in  1930  be 
costing  five  or  more  million  dollars  a  year  unless  in  some  way  radical 
reductions  are  made  either  in  the  per  student  cost  of  instruction  or  in  the 
number  of  students  to  be  taught. 

Although  there  arc  two  other  state  supported  universities,  Miami 
and  Ohio,  and  two  normal  colleges,  Rowling  Green  and  Kent,  a  law  has 


ON    ADMINISTRATIVE   REORGANIZATION 


411 


declared  the  state's  policy  to  be  (i)  to  develop  only  under-graduate 
colleges  and  teacher  training  schools  at  these  centers  and  (2)  to  develop 
at  the  Ohio  state  university  alone  one  university  worthy  of  Ohio,  with 
professional  colleges  and  a  graduate  school  of  high  rank. 

A  short  cut  to  an  appreciation  of  the  major  probrems  now  confront- 
ing all  those  responsible  for  the  Ohio  state  university  is  furnished  by  the 
following  summary  of  12  facts  which  for  your  committee  were  placed 
before  the  trustees  at  their  February  meeting  and  before  the  council  of 
deans  on  the  next  day,  by  request  of  the  president. 

I  —  Complete  non-use  of  the  university's  classroom  space  exceeds 
50%,  not  counting  evening  hours,  Saturday  afternoon  or  any 
hours  when  space  was  partially  used,  as  by  a  class  of  20  in  a 
room  for  50,  in  spite  of  the  universal  conviction  among  ofHcers 
and  faculty  that  the  buildings  are  so  seriously  overcrowded 
that  effective  instruction  is  difficult  when  not  impossible. 

NoN-Usc,  Partial  U5eXompletdUs[  or  Buildings 

OHIO  STATE  UNWEK^ITY 


NonUse 


Part.il  Uie  I I  Complete  Ui 


412  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

2  —  Of  325  classes  by  99  full  professors,  55  have  five  or  fewer 

students  and  113  have  ten  or  fewer  students,  —  in  spite  of  the 
general  impression  that  this  year's  overcrowding  has  almost 
eliminated  small  classes. 

3  —  Of  99  full  professors   56  report  no  research  during  the   six 

week  days  selected  for  describing  in  detail  the  teaching  and 
non-teaching  loads  of  the  faculty;  11  others  reported  one-half 
hour  or  less  per  day;  eight  others  between  one-half  hour  and  an 
hour  a  day.  This  makes  75  of  99  full  professors  who  reported 
no  research  or  less  than  one  hour  a  day.  Each  of  the  remain- 
ing 14  reported  from  one  to  two  hours.  Only  seven  or  7% 
reported  two  hours  or  more,  —  a  fact  which  many  deplored  in 
written   and   oral  statements  to  your  committee. 

Of  88  ranked  as  instructors  65  reported  no  research,  five 
under  half  an  hour  a  day,  1 1  between  half  an  hour  and  an  hour, 
three  between  one  hour  and  two  hours  and  only  four  over  two 
hours,  —  a  condition  that  bodes  ill  for  future  standards  of 
scholarship  among  such  instructors  and  their  students. 

4  —  Of  the  56  full  professors  who  reported  no  research  two  re- 

ported fewer  than  10  hours  a  week  given  to  instructional 
duties;  five  from  10  to  20  hours  a  week;  19  from  20  to  :^o 
hours;  19  from  31  to  40;  and  only  11  over  40  hours  given  to 
instructional  duties,  —  a  fact  for  which  university  authorities 
were  hardly  prepared  because  the  reason  usually  assigned 
for  the  little  research  has  been  that  the  faculty  was  overloaded 
with  instructional  duties. 

5  —  Of  56  professors  reporting  no  research  24  met  with  their  classes 

fewer  than  five  hours,  20  from  five  to  10  hours,  seven  from  11 
to  15  hours  and  five  over  15  hours. 

6  —  To    all    instructional    duties    including   conferences    with    and 

about  students,  preparing  of  papers,  reviewing  papers,  time 
spent  in  class  and  time  going  to  and  from  classes,  22  of  99 
full  professors  gave  over  40  hours  a  week;  5  less  than  10 
hours;  6  from  16  to  20  hours;  15  from  21  to  25  hours;  18 
from  26  to  30  hours;  19  from  31  to  35  hours;  63  less  than  6 
hours  daily;  14  from  36  to  40  hours;  12  from  41  to  45  hours; 
3  from  46  to  50  hours ;  7  over  50  hours  36  over  6  hours  daily. 

7  —  In  total  time  required  by  fhe  state  37  or  38%  of  99  full  pro- 

fessors reported  less  than  40  hours  a  week  and  62  or  63%  re-, 
ported  over  40  hours  a  week.  3  from  21  to  25  hours;  4  from 
26  to  30  hours;  6  from  31  to  35  hours;  13  less  than  6  hours 
daily;  23  from  36  to  40  hours;  21  from  41  to  45  hours;  17 
from  46  to  50  hours ;  10  from  51  to  55  hours;  7  from  56  to  60 
hours ;  7  over  60  hours ;  86  over  6  hours  daily. 


ON   ADMINISTRATIVE  REORGANIZATION 


413 


Week'5  Work- Professors 


20% 


8—18  of  99  full  professors  report  time  given  for  outside  remun- 
eration from  seven  minutes  to  28  hours  a  week,  totalling  138 
hours,  or  the  equivalent  of  three  full  weeks  for  one  professor; 
3  less  than  i  hour;  i  from  2  to  3  hours;  3  from  3  to  4  hours; 
I  from  5  to  6  hours ;  4  from  6  to  8  hours ;  6  over  8  hours. 

Of  the  18  reporting  outside  work  14  also  reported  no  re- 
search. The  one  who  reported  28  hours  bracketed  his  time 
spent  on  scientific  research,  study  for  professional  work  and 
outside  remunerative  work. 


414  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

9  —  3%  of  time  reported  by  99  full  professors  and  6%  of  88  in- 
structors' time   went  to  individual  conferences  with   students 
out  of  classes  (see  per  page  6)  : 
Time  to  conferences  of  99  professors:     of  88  instructors 

No  time  22  13 

Less  than  i  hour  a  week.  ...  21  22 

1  to  2  hours 25  19 

2  to  3  hours 15  10 

3  to  4  hours 5  9 

4  to  5  hours 5  3 

Over  5  hours 6  12 

10  —  The  teaching  loads,  that  is,  the  total  student  periods  found  by- 
adding  together  the  total  number  in  all  recitations,  lecture  or 
laboratory  periods,  range  from,  zero  for  one  research  professor 
to  1000  for  another  professor  having  large  lecture  classes; 
14  total  less  than  100;  18  total  100  to  200;  17  total  from  201 
to  300;  49  having  fewer  than  the  minimum  suggested  by  the 
U.  S.  bureau  of  education;  21  total  from  301  to  400;  8  total 
from  401  to  450;  29  within  the  minimum  and  maximum  figures 
suggested  by  the  U.  S.  bureau  of  education;  7  total  from  451  to 
500;  5  total  from  501  to  600;  4  total  from  601  to  700;  2  total 
from  701  to  800;  3  over  800;  21  over  the  maximum  suggested 
by  the  U.  S.  bureau  of  education. 


USE,  PARTIAL  USE,  AI-ID  IJON-USE  OF  ROOMS  BY  STUDEKTS 
Institution  Chip  State  UnlT.  Buildinc  Horticulture 

Roon   106  Dimensions    35  x  20   Student  Capacity   30 


V^-i 


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Length 


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O-Ovtrorowded,    «rhAte-r&r.|il€te  uoe,    fractlon-pr.rtiua   uae.i^-nor.  use 


ON   ADMINISTRATIVE   REORGANIZATION 


415 


4l6  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

II — The  total  time  for  the  state  given  by  99  full  professors  was 
distributed  as  follows:  30%  to  actual  meetings  with  classes; 
21%  to  preparation;  10%  to  reviewing  papers;  3.7%  to  con- 
ferences with  individual  students;  6.3%  to  other  instructional 
duties ;  and  29%  to  non-instructional  duties. 
12  —  The  housing  conditions  for  men  and  women  students  are  quite 
seriously  inadequate  as  is  the  supervision  of  them.  Adverse 
conditions  are  by  no  means  universal  but  how  general  they  are 
is  not  now  known.  Those  reported  to  your  committee  include : 
three  are  sleeping  in  rooms  intended  for  two ;  some  are  sleep- 
ing where  none  should  be  allowed  to  sleep;  essential  health 
standards  of  lighting,  heating,  ventilating  are  not  enforced 
because  information  regarding  them  is  not  possessed ;  preven- 
tion of  over-charging,  over-crowding  and  under-feeding  in 
private  rooming  and  boarding  houses  is  impossible  for  want 
of  information ;  opportunities  for  wholesome  recreation  are  not 
commensurate  with  the  university's  responsibility  to  students, 
parents  and  social  standards. 

Each  of  the  12  foregoing  facts  is  doubly  significant.  Each  suggests 
a  problem  of  first  magnitude  for  university  trustees,  officers  and  faculty. 
Each  points  the  way  to  the  most  important  single  step  in  reorganization 
which  is  needed  at  Ohio  statQ  university,  —  and  at  the  other  state  sup- 
ported institutions  of  higher  learning,  —  namely,  the  need  for  administra- 
tive research  by  each  institution  of  itself. 

Heretofore  neither  trustees,  nor  president,  nor  deans,  nor  business 
manager,  nor  registrar  have  currently  sought,  collected  and  analyzed 
such  information  for  O.  S.  U.  When  issues  arose  involving  the  teach- 
ing and  non-teaching  load  of  faculties,  the  use  and  non-use  of  space, 
the  protection  of  students  from  over-crowding  and  under-supervision, 
comparative  support  of  colleges,  next  steps  needed,  etc.,  all  parties  con- 
cerned including  the  governor  and  legislature,  have  been  required  to 
cope  with  those  issues  without  a  common  fact  basis. 

Yet  it  is  obvious  that  there  canot  be  equitable  distribution  of  the 
teaching  and  non-teaching  load  among  faculty  members  if  no  one  knows 
definitely  how  much  of  a  load  each  one  is  carrying,  how  many  hours  of 
work  it  requires  to  give  a  lecture  course  or  a  quiz  course  or  a  laboratory 
course  or  an  English  composition  course  and  how  much  lime  is  given  to 
clerical  work,  to  interviewing  students  or  to  research. 

Therefore  the  suggestion  that  the  Ohio  state  university  and  each 
of  the  other  institutions  establish  a  division  of  administrative  research 
for  continuous  and  cumulative  self-study  and  that  in  this  division  there 
be  included  provision  for  reference  study  or  high  spotting  of  best  prac- 
tices and  constructive  proposals  from  both  Ohio  public  school  systems 
and  educational  activities  in  other  states.     This  last  point  is  extremely 


ON    ADMINISTRATIVE    REORGANIZATION 


417 


important  for  a  central  state  university  should  be  always  jealously  scan- 
ning education's  heavens  and  boiler  rooms  for  suggestions.  Forecasts 
such  as  Miami's  president  published  in  1920  for  all  Ohio  colleges  should 
be  minimum  essentials  in  the  current  equipment  of  Ohio  state  university. 
The  place  for  this  division  of  continuing  self-study  or  administrative 
research  is  felt  by  some  to  be  under  the  faculty's  secretary  or  registrar. 
As  a  matter  of  logic  this  is  defensible  organization.  As  a  matter  of 
practice,  it  is  here  suggested  that  such  work  belongs  properly  in  the 
central  administrative  office  under  the  business  manager  subject  to  the 
president  and  the  trustees.  The  questions  that  come  into  this  division 
involve  the  use  of  a  plant  worth  several  million  dollars  and  a  rapidly 


Inetlt 
Room 


USE,    P^VRTI^-J.   USS,    Al'.v  KGM-USS   OF   KOOlilS   USED  BY   STUIErTVE 
:tion     Ohio   state  Univ.  Builfing       Chemistry 

500  riaensit-na      l.'i   x   36  Student   Capacity        25 


Lte-oomplete   use,    frictionc   parti-.l  use,   #-non-u8e 


rising  payroll  already  nearly  a  million  and  a  quarter  dollars.  In  other 
words,  it  is  a  very  large  business  undertaking  and  belongs  with  other 
business  undertakings. 

If  the  final  interpretation  and  application  of  information  gained  by 
self-study  of  a  university  needed  to  be  by  the  same  office  which  com- 
piled it,  there  would  be  reasonable  ground  for  insisting  that  all  the 
clerical  and  compiling  work  rest  with  the  faculty's  secretary  rather  than 
with  the  business  manager.  But  such  is  not  the  case.  What  the  business 
manager  gathers  can  and  should  be  made  available  to  all  business  and 
faculty  members,  and  fact  end  first  rather  than  conclusion  end  first. 
Thus,  all  persons  involved  would  be  equal  in  the  right  to  interpret  the 
facts.  The  faculty  would  be  grateful  that  the  vast  amount  of  required 
27 


411 


RErORT   OF   JOINT   LEGISLATIVE   COMMITTEE 


routine  work  was  done  by  persons  accustomed  to  such  work  and  paid 
for  it  and  was  not  dependent  upon  the  spare  moments  of  facuUy  mem- 
bers whose  vakiable  time  should  be  used  in  interpreting  and  applying 
information  instead  of  in  collecting  it. 

A  bureau  of  administrative  research  and  reference  should  be  a 
hopper  into  which  any  person  connected  with  the  university  may  drop  a 
question,  a  suggestion  or  a  fact  with  a  feeling  of  certainty  that  the  little 
which  he  can  contribute  will  be  scientifically  used  with  other  similar 
contributions  for  the  benefit  of  the  whole  university.  Or  this  bureau 
would  be  the  prism  into  which  suggestions  would  come  from  many 
sources, — every  combination  of  colors  relating  to  expense,  use  of  space, 
teaching  loads,  course  of  study,  faculty  democracy,  and  then  be  classified, 


USB,   PABTIAL  USE,    MD  NON-USS  OP  ROOMS  USED  BY   STUDENTS 


Institution     Ohio 
Room               112 

State  University 
Dimensions 

Building       Machinery  Hall 
(Agri.Lab.) 
Student  Capacity        32 

Period 
Length 

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— yellow  separated  from  green,  red  separated  from  violet — and  distributed 
both  to  the  whole  organization  and  to  the  special  parts  of  the  organization 
that  can  use  each  class  of  information. 

Faculty  cooperation  in  suggesting  work  for  such  a  bureau,  and  in 
making  use  of  its  results,  might  well  be  effected  through  a  small  commit- 
tee in  addition  to  participation  by  individual  faculty  members. 

Without  such  an  organization  for  self-study  any  university  nnist  live 
from  hand  to  mouth  in  its  planning.  There  can  be  no  democracy  of 
action  in  a  large  faculty  where  there  is  not  democracy  of  information, 
'ihcrc  cannot  be  equality  of  opportunity  and  equality  of  load  where 
everyone  is  in  the  dark  as  to  opportunities  and  loads.  Moreover,  as 
both  trustees  and  deans  were  asked  to  reflect,  iIum-c  can  be  no  bridging  of 


ON    ADMINISTRATIVE   REORGANIZATION 


419 


the  rapidly  widening  chasm  between  university  faculties  and  university 
officialdom  including  trustees  until  there  is  more  information  than  has 
heretofore  been  available  about  the  relation  of  faculties  to  officialdom  and 
trustees,  to  one  another,  and  to  their  common  problems. 

Instead  of  fearing  the  intrusion  of  business  manager  and  trustees 
into  educational  policies  American  faculties  would  wisely  be  doing  their 
utmost  to  keep  business  managers  and  trustees  immersed  in  educational 
problems.  In  fact  the  balanced  development  of  a  great  educational  insti- 
tution requires  that  the  business  management  shall  at  no  time  forget  that 
it  exists  solely  for  educational  ends. 


USE,  PARTIAL  USS,  AND  NON-USE  OF  ROOMS  USED  BY  STUDENTS 
Institution  Ohio  State  Univ.  Building  University  Kail 

Hoom     306         Dimensions   24  x  37     Student  Ca-pacitv 


te-conplete  use,  fractions-partial  u»e,#-non-tse 


This  result  can  never  be  accomplished  where  business  management 
and  trustees  are  kept,  or  keep  themselves,  in  dark  rooms  into  which  edu- 
cational light  seldom  or  never  penetrates. 

To  re-enforce  this  appeal  for  inextricably  binding  together  business 
management  and  educational  purpose  by  placing  the  division  of  adminis- 
trative research  under  the  business  management — but  subject  to  use 
by  all  educational  agents — the  accompanying  comparison  of  Soviet 
Russia's  government  with  the  government  of  the  United  States  was  pre- 
sented to  the  deans. 

If  the  Russian  citizen  wants  to  correct  some  administrative  defect 
in  his  central  government,  he  must  work  through  his  shop  or  trade 
soviet  which  elects  delegates  to  an  urban  soviet ;  which  elects  delegates 
to  a  provincial  congress  of   300 ;  which  elects   delegates   to  a   regional 


420 


REPOKT  OF   JOINT   Lr-:(;iSLATIVE   COMMITTEE 


congress  of  500;  which  elects  delegates  to  an  AU-Russian  council  of  1500; 
which  w^orks  through  an  executive  committee  of  25a;  which  chooses  a 
council  or  cabinet  of  17,  each  of  whom  has  a  special  college  of  advisors. 
The  net  result  is  the  complete  helplessness  of  the  citizen  back  home  and 
the  dictatorship  of  the  mind  at  the  top  that  is  completely  insulated,  thanks 
to  the  complicated  wdieels  within  wheels  within  wheels.  In  the  United 
States,  whatever  the  American  citizen  has  to  say  to  a  congressman  or  a 
president  he  may  say,  not  through  a  labyrinth  of  intervening  bodies  but 
directly. 

The  application  to  faculties  is  that,  as  the  constitution  outlined  for 
the  Ohio  state  university  sliowed.  there  is  the  same  tendency  in  American 


Krom  the  Voter  to  National    Oovernment 


Russia    and.    U.S.A. 


This  chart  is  taken  from  Teachable 

Facts  about  Bolshevism  and  Sov.'etism. 

Published  bq  Institute  for  Public  Service 

51  Chambers  St.  NY  C 


faculties  as  in  Soviet  Russia  to  confuse  delegation  with  democracy  and 
to  substitute  physical  for  informational  representation.  History  shows 
that  there  is  no  surer  way  to  disfranchise  any  body  of  men  than  to  have 
them  elect  delegates  to  a  body  that  elects  delegates  to  another  body  that 
elects  delegates.  The  remedy  for  the  overwhelming  majority  of  prob- 
lems that  now  cause  unrest  in  American  faculties  is  information — plenty 
of  information  covering  points  at  issue — and  that  information  demo- 
cratically circulated. 

The  question  of  faculty  organization  for  Ohio  institutions  is  briefly 
treated  in  another  section. 

Another  suggestion  that  was  made  to  trustees  and  to  deans  is  here 
rejKatcd,  namely,  that  Ohio  state  university  begin  a  cooperative  build- 


ON    ADMINISTRATIVE   REORGANIZATION  421 

as-you-go  self-survey  for  the  sake  of  discovering  and  making  known  to 
all  faculties  the  high  spots  or  advanced  steps  and  strong  points  of  each 
department  of  the  university.  At  present  very  little  is  known  by  the 
faculty  of  one  college  about  the  best  work  of  the  college  that  occupies 
a  building  next  door  or  across  the  campus.  Moreover,  as  one  trustee 
stated  at  the  trustees'  meeting,  the  university  as  a  whole  is  going  on 
year  after  year  in  almost  complete  indifference  to  and  ignorance  of  the 
great  problems  of  education  that  are  confronting  the  public  schools  with 
their  million  pupils  from  whom  the  university  now  takes  each  year  over 
seven  thousand. 

The  university  has  grown  by  leaps  and  bounds.  Faculties  have  been 
so  busy  doing  their  own  work  that  they  have  had  little  time  or  apparent 
reason  to  know  their  colleagues'  work.  This  great  university  cannot 
build  up  to  the  state's  needs  unless  its  various  parts  work  together  toward 
the  same  vision  in  the  harmonious  marching  step  which  is  impossible 
where  they  do  not  know  one  another  well  enough  to  work  together. 

Apart  from  the  public  and  all-university  reasons  for  such  a  self- 
survey  there  is  this  special  and  personal  appeal  to  each  faculty  member, 
—  it  is  failure  on  the  part  of  university  faculties  to  study  education  that 
is  primarily  responsible  for  the  present  too-low  standards,  too  little 
cooperation,  too  many  restrictions,  too  little  initiative,  too  little  research, 
too  little  scholarship  of  university  life.  There  are  many  other  steps  to 
take  besides  a  self-survey.  This  cooperative  build-as-you-go  self-survey 
is  suggested,  however,  as  next  step  for  Ohio  state  university  particularly 
because  it  has  great  problems  that  call  for  team  work.  There  is  no  other 
way  in  which  faculties  can  discover  the  common  elements  in  their 
program  so  quickly  and  so  agreeably  as  when  looking  for  high  spots  of 
program  and  best  practice  which  they  wish  to  continue  and  expand. 

Such  a  search  would  disclose  needs  that  call  for  common  under- 
standing and  attention.  But  the  needs  would  come  before  the  faculty 
and  officers  against  a  background  of  aim  and  achievement  that  would 
facilitate  cooperation  and  almost  remove  discord. 

This  is  an  appropriate  time  for  such  a  study  of  Ohio  state  uni- 
versity because  the  president  has  asked  the  board  to  relieve  him  of 
responsibility  in  June  1920 ;  the  dean  of  the  college  of  education  has 
resigned ;  a  large  number  of  faculty  members  have  resigned ;  there  is 
much  unrest  in  the  system  which  will  grow  worse  instead  of  better  unless 
a  basis  for  forward  looking  team  work  is  found ;  and  there  is  a  new  bond 
of  sympathy  because  of  the  recent  difficulties  due  to  over-crowding  and 
large  numbers  of  freshmen,  depleted  teaching  staffs,  and  discussions 
within  the  Teachers  League  and  the  local  branch  of  the  Association  of 
College  Professors. 

Ohio  and  every  other  state  which  maintains  Jiigher  institutions  of 
learning  would  be  helped  if  the  trustees  of  Ohio  state  university  wei^  ^o 
act  upon  another  suggestion  made  by  your  field  agent,  namely,  that  they 


422  RKl'OKT   OF   JOINT   LEGISLATIVE   COMMITTEE 

call  a  national  conference  of  trustees  of  state  supported  educational 
institutions  to  consider  methods  of  securing  greater  cooperation  between 
trustees  and  faculties  by  way  of  more  democratic  circulation  of  knowl- 
edge about  educational  problems  and  practices. 

There  never  has  been  a  convention  of  policy  makers  in  our  greai- 
American  institutions.  Everybody  else  but  trustees  is  organized.  At 
the  great  educational  congress  in  Cleveland,  February  1920,  no  trustees' 
voice  was  heard,  and  no  problem  peculiar  to  trustees  was  discussed,  nor 
were  applications  made  about  general  problems  for  trustees. 

Such  a  meeting  would  make  it  easier  ever  afterward  for  trustees 
and  faculties  to  come  together  on  the  basis  of  educational  problems  which 
can  never  be  dealt  with  in  a  statesmanlike  way  until  policy  makers  and 
policy  executers  work  together.  It  is  costing  faculties  tens  of  millions  of 
dollars  every  year  that  they  and  their  presidents  and  deans  have  not 
encouraged  trustees  to  think  in  big  enough  ways  about  trustee  steward- 
ship. One  national  gathering  of  the  able  men  on  our  various  university 
boards  would  make  it  fashionable  for  regents  and  trustees  to  think 
nationally  and  internationally  and  in  large  terms  and  no  longer  locally 
about  education. 

If  the  Ohio  state  university  trustees  fail  to  act  upon  this  suggestion 
it  is  of  sufficient  importance  to  warrant  a  special  call  by  your  com- 
mittee and  the  governor  of  Ohio  speaking  in  the  name  of  the  state  sup- 
ported education.  Unquestionably  similar  legislative  committees  and 
executives  of  near-by  states  would  be  happy  to  join  in  such  a  call. 


Postscript.  At  the  request  of  the  trustees  President  Thompson  con- 
sented to  serve  beyond  June,  1920  but  did  not  withdraw  his  request  for 
early  relief.  The  joint  legislative  committee  seconded  its  field  agent's 
suggestion  that  the  trustees  of  Ohio  state  university  call  a  national  con- 
fevc-nce  of  trustees  of  state  suj^portcd  higher  education 


TNI':   (iRAI)UATI^   SCHOOL   AND   GRADUATl'.    WORK   OHIO 
STATK  UNIVERSITY 

Ohio  has  one  state  supported  graduate  school,  namely  that  at  Ohio 
state  university.  The  law  provides  for  one  year  of  advanced  work  lead- 
ing to  a  master's  degree  at  Miami  and  Ohio  universities,  but  these  two 
institutions  have  agreed  not  to  give  this  degree.  Credit  for  advanced 
work  done  by  these  institutions  by  faculty  members  is  given  by  the  Ohio 
state  university  if  the  faculty-student  is  registered  there  and  working 
under  its  supervision. 

The  enrollment  of  the  graduate  school  at  Ohio  state  university  grew 
from  178  in  1912  to  439  in  1916.  a  gain  of  jOi,  or  1509^..  With  the  war- 
time demand  for  trained  abilities  and  for  men  and  wt)men  able  to  render 


Session 

Total 

81 

178 

95 

223 

125 

238 

144 

329 

195 

439 

158 

391 

113 

274 

164 

307 

ON    ADMINISTRATIVE   REORGANIZATION  423 

war  service  there  was  a  natural  reduction :  the  total  register  for  the  sum- 
mer session  dropped  from  439  to  the  low  point  of  274,  and  during  the 
academic  year  from  244  to  143.  The  pendulum  swung  back  this  year: 
last  summer  the  register  was  164  and  during  the  academic  year  1919-1920 
was  180.     The  register  by  years  has  been  as  follows : 

Academic   Slimmer 

Year  Year 

1911-12 97 

1912-18  128 

1913-14  113 

1914-15  185 

1915-16  244 

1916-17  233 

1917-18  161 

■1918-19  143 

1919-20  180 

Asked  to  forecast  the  growth  of  the  graduate  school  for  five  and 
ten  years,  the  dean  estimated  that  not  counting  the  summer  session  there 
will  be  400  in  1925  and  600  in  1930.  For  the  summer  session  he  estimates 
a  total  of  300  in  1925  and  400  in  1930.  If  these  estimates  are  correct 
it  means  that  within  five  years  there  will  be  700  students  asking  for 
graduate  work  in  the  regular  year  and  1000  seeking  summer  opportunities 
for  graduate  work. 

Regarding  enrollment  the  dean  reported  to  your  committee  that  the 
graduate  school  has  never  striven  for  numbers  ;  that  the  grow'th  has  been  a 
natural  growth ;  that  only  such  work  has  been  undertaken  as  could  be 
-"irried  on  in  a  thoroughly  satisfactory  manner;  and  that  "if  the  state 
would  make  appropriation  so  that  it  would  be  possible  for  more  of  our 
men  on  the  faculty  to  devote  an  increased  amount  of  time  to  graduate 
■.^■ork,  also  to  bring  to  the  faculty  an  increased  number  of  men  of 
national  reputation  who  could  devote  their  time  largely  to  graduate  in- 
struction, the  graduate  school  would  be  correspondingly  increased." 

As  stated  in  the  section  on  research,  many  educators  wrote  to  your 
committee  expressing  a  conviction  that  all  educational  work  in  Ohio 
now  suffers  because  not  enough  facilities  for  graduate  work  are  offered 
by  the  Ohio  state  university.  This  protest  against  present  inadequate 
attention  to  graduate  work  was  voiced  not  only  by  faculty  members  of 
vhe  university  itself  but  by  faculty  members  of  other  public  and  private 
universities  and  by  school  superintendents.  Even  among  engineers  and 
others  now  practicing  their  professions  outside  of  the  university  a  feel- 
ing was  frequently  expressed  that  more  graduate  work  and  more  exacting 
and  more  productive  graduate  work  should  be  offered  at  Ohio  state  uni- 
versity. From  the  public  school  field  alone  there  should  be  more  graduate 
students  in  attendance  at  Ohio  state  university  than  the  highest  previous 
register  in  all  graduate  courses.    For  summer  sessions  such  attractive  and 


424  KEl'OKT   OF   JOINT   LEGISLATIVE   COMMITTEE 

immediately  helpful  advanced  work  should  be  offered  that  the  enrollmeni 
of  graduate  students  would  be  three  or  four  times  as  great  as  the  large.-;i 
summer  register  of  graduates  heretofore. 

A  graduate  school  caters  to  three  classes  of  student :  i  —  those  who 
want  more  academic  credits  for  the  sake  of  the  credits  and  the  prestige  or 
salary  increases  expected  from  credits  ;  2  —  those  who  bring  questions  to 
be  answered  or  needs  to  be  met  in  their  professional  work,  like  a  principal 
or  superintendent  wishing  light  on  knotty  problems  in  school  management, 
or  like  a  newly  elected  county  auditor  wishing  special  help,  or  an  editor 
perhaps  wishing  conference  on  industrial  problems  or  public  taxation ; 
3  —  those  who  wish  training  in  research  methods  and  opportunities  in 
productive,  scientific  research  and  scholarship. 

For  discovering  which  students  belong  to  each  of  these  three  classes 
there  is  no  present  organization  at  the  university.  For  discovering  which 
kinds  of  students  are  helped  or  not  helped  by  graduate  courses  offered 
there  is  no  present  organization.  Instead,  graduate  work  has  grown  here 
as  it  has  generally  grown  elsewhere,  in  response  to  the  presence  of  grad- 
uate students,  a  large  proportion  of  whom  stay  on  or  come  back  for 
graduate  work  not  because  of  any  thirst  for  knowledge  or  yearning  for 
scholarly  attainment  but  because  the  master's  degree  representing  two 
semesters'  full  work  taken  after  a  bachelor's  degree  has  been  worth  a 
hundred  dollars  or  more  a  year,  or  because  reputation  for  doing  graduate 
work  has  been  a  negotiable  asset.  A  contributing  reason  for  the  growth 
of  graduate  work  has  been  the  proselyting  desire  of  departments  them- 
selves for  the  prestige  that  comes  from  graduate  students  recruited  from 
students  of  the  three  classes  and  promoted  for  reasons  that  have  little  or 
nothing  to  do  with  research  or  scholarship.  The  graduate  school  has 
grown  and  will  continue  to  grow  and  calls  for  attention  and  organization 
which  heretofore  have  been  lacking.  This  conclusion  is  frankly  voiced  at 
the  university  itself,  where  it  is  generally  felt  that  graduate  work  is  not 
now  adequately  organized  from  the  standpoint  of  the  students  of  the 
departments  of  the  university  as  a  whole  or  the  state. 

The  first  forward  step  in  organization  is  to  arrange  for  studying  th-' 
job  assigned  to  the  graduate  school,  Ohio's  need  for  graduate  work  of 
different  kinds,  the  gaps  between  what  is  needed  and  what  is  being  of- 
fered, i)rescnt  methods  of  ascertaining  whether  a  graduate  student  is 
staying  on  because  he  lacks  courage  to  go  out  and  use  his  abilities,  be- 
cause he  has  been  overpersuaded  by  faculty  members  wishing  graduate 
students,  or  because  he  has  some  definite  professional  or  scholarship  end 
in  view. 

For  deciding  what  graduate  wnvk  should  be  done  and  for  super- 
vising it  in  progress  it  is  recommencled : 

I  —  That  more  time   be  allowed  to  the  dean  of  the  graduate 
school  for  deaning.     l'\>r  i)lanning  and  supervising  graduate 


ON    ADMINISTRATIVE    REORGANIZATION  425 

work  the  Ohio  state  university  has  a  part-time  dean  and  a 
graduate  council  of  representatives  from  different  departments. 
To  administrative  duties  the  dean  of  the  graduate  school  gave 
during  the  typical  week  reported  by  the  Ohio  state  university 
faculty  ten  hours  and  a  half,  and  to  faculty  meetings  two  hours, 
making  a  total  of  twelve  hours  and  a  half  given  to  admin- 
istrative duties  and  faculty  meetings.  During  that  same  week 
he  gave  over  29  hours  to  instructional  duties,  including  two 
hours  to  individual  conferences  with  students  outside  of  class, 
three  hours  to  supervision  of  teaching  by  faculty  members, 
and  almost  four  hours  to  conference  with  faculty  members  with 
respect  to  classes.  A  graduate  school  that  will  do  for  the 
state  of  Ohio,  its  universities,  its  social  problems,  and  its  gov- 
ernment what  clearly  needs  to  be  done,  cannot  for  some  time  to 
come  afford  to  have  its  dean  giving  29  hours  a  week  to  in- 
structional duties  of  any  kind  other  than  helpful  supervision  of 
graduate  research  and  instruction. 

2  — That  the  graduate  dean  be  held  jointly  responsible  with  depart- 

ments for  insuring  the  adequacy  of  research  methods  and  re- 
sults. At  present  this  supervision  is  left  entirely  to  the  de- 
partmental organization.  This  means  that  in  a  very  large  per- 
centage of  cases  it  is  left  actually  to  the  graduate  student  him- 
self. There  is  now  no  plan  for  testing  the  worthwhileness  of  a 
research  project  before  the  student  embarks  upon  it  or  after 
he  has  sul^mitted  his  results  except  such  as  the  interested  de- 
partment itself  im])OS€s. 

3  —  That  the  content  of  instruction  and  training  in  the  graduate 

school  be  changed  so  that  it  will  almost  entirely  consist  of  field 
projects  or  strictly  professional  work,  and  that  it  be  extended 
to  include  in  absentia  work.  It  ought  not  to  be  necessary  for 
a  man  working  on  an  interesting  problem  and  needing  help  to 
give  up  his  work,  leave  it  behind  him  at  home,  and  go  off  to 
Columbus  in  order  to  secure  help  from  the  state's  university 
in  prosecuting  that  work.  It  ought  not  to  be  necessary  even 
for  graduates  or  other  persons  with  advanced  problems  in  the 
city  of  Columbus  to  stop  their  earning  in  order  to  secure  help 
from  the  university.  There  should  be  afternoon  courses,  night 
courses,  Saturday  courses,  correspondence  courses,  and  indi- 
vidual conferences  through  which  the  university  will  send  its 
ability  to  direct  stimulating  supervision  to  the  ])lace  where  a 
problem  needs  solution. 

4  —  That  by  slight  but  entirely  practicable  changes  of  method 

the  university  tie  up  its  supervision  of  graduate  work  with 
the   industrial,  professional,   and   educational  worlds   in  all 


426  KEl'OUT   OF   JOINT    LKGISLATIVE   COMMITTEE 

parts  of  the  state.  It  is  a  pity,  for  example,  that  the  great 
laboratories  of  the  General  Motors  Corporation  were  not  placed 
on  the  university  campus,  or  that,  being  placed  in  Dayton,  they 
were  not  made  a  recognized  part  of  the  university's  laboratory 
and  training  equipment.  Every  school  system  in  Ohio  can  and 
should  be  part  of  the  laboratory  of  the  graduate  school.  The 
gathering  of  graduate  students  at  the  university  in  Columbus 
should  be  for  the  most  part  for  the  sake  of  checking  up  on 
field  studies  rather  than  for  listening  to  lectures  or  doing  as- 
signed reading. 

5  —  That  the  co-operative  studies  suggested  in  the  report  on  re- 

search be  extended  to  include  a  program  and  procedure  for  the 
graduate  school,  including  far  more  exacting  tests  of  the  theses 
for  the  master's  and  doctor's  degree. 

6  —  That  a  full  time  dean  be  expected  to  work  out  for  faculty 

adoption  tests  of  student  purpose  and  student  personality 
before  registering  emy  student  in  the  graduate  school.  Tax- 
payers of  the  state  will  not  insist  upon  giving  anyone  free 
graduate  opportunities  who  cannot  prove  capacity  to  use  those 
opportunities.  The  quickest  way  to  build  up  prestige  for  Ohio's 
graduate  school  is  to  have  the  world  know  that  it  will  not 
bother  with  people  who  lack  personality,  force,  "displacement", 
and  desire  to  use  scholarship  for  service.  It  is  demoralizing 
to  scholarship  to  have  large  numbers  of  young  people  hanging 
on  to  a  university  instead  of  learning  how  the  world  can  use 
or  will  refuse  to  use  what  they  have  already  acquired.  It  is 
certainly  demoralizing  to  state  supported  education  that  a  man 
who  lacks  the  nerve  to  go  out  into  the  world  at  the  end  of  his 
senior  year  can  by  staying  in  a  fifth,  sixth  or  seventh  year, 
by  mere  accretion,  secure  an  advanced  degree  and  a  teaching 
position  at  some  college.  A  corollary  to  this  proposition  is  that 
the  university  should  stop  offering  courses  which  can  be  suc- 
cessfully taken  by  anyone  who  lacks  purpose  and  personality 
of  the  high  standard  which  a  graduate  school  should  define. 
One  exception  seems  now  to  be  necessary,  namely  graduate 
work  in  education.  The  Ohio  law  pays  a  teacher  for  addi- 
tional credits.  Fortunately  the  graduate  school  can  prevent  this 
law  becoming  a  farce  and  imposition.  It  can  oft"er  courses  to 
teachers  which  will  be  unavoidably  helpful  even  if  at  first 
the  teacher's  only  motive  in  coming  is  to  secure  the  promotion 
or  salary  advance  which  the  law  and  current  standards  in  school 
work  make  dependent  upon  more  academic  credits. 

7  —  That  courses  be  worked  out  for  in  absentia  work  which 
will  definitely  recognize  as  graduate  work  of  high  degree 


ON    ADMINISTRATIVE    REORGANIZATION  4-7 

Studies  and  accomplishments  in  home  towns  and  even  travel. 

Oliio  is  strong  enough  to  snap  its  fingers  at  the  academic  tra- 
dition which  gives  credit  for  reading  about  a  factory  or  cathe- 
dral or  a  poet's  birthplace  and  denies  credit  for  visiting  them. 
No  state  institution  is  strong  enough  to  foster  a  tradition  which 
recently  led  a  great  privately  endowed  university  to  refuse  a 
degree  to  a  man  for  outlining  and  securing  public  adoption  of 
a  great  policy,  and  later  gave  a  degree  to  another  man  for  de- 
scribing how  the  first  man  did  it. 
8  —  That  graduate  scholarships  or  fellowships  under  the  state's 
control  be  offered  only  to  Ohio  residents.     The  many  argu- 
ments against  this  practice  have  been  stated  in  another  section. 
Occasionally  Ohio  may  lose  by  this  discrimination  an  oppor- 
tunity to  help  some  man  or  woman  whose  later  work  would 
bring  great  credit.     This  possible  gain  is  very  small  compared 
with  the  great  gain  that  will  result  from  having  Ohio's  gradu- 
ate school  combing  the  high  schools  and  colleges  of  the  state  for 
the  most  promising  abilities  by  constantly  advertising  to  stu- 
dents and  instructors  that  there  is  $10,000  available  for  scholar- 
ships and  fellowships.    This  decision  once  made,  there  will  not 
be  $3750  in  fellowship  money  unassigned,  as  there  was  in  1920, 
at  least  until  after  the  university  has  again  and  again  made  the 
opportunities  known. 
9  — That  under  the  direction  of  the  dean,  and  with  the  help 
of  a  division  of  administrative  research,  the  graduate  fac- 
ulty be  asked  to  make  the  studies  with  respect  to  Ohio's 
own   practices   and   results   which    were   suggested   at   the 
21st   annual   conference   of   the   Association    of    American 
Universities,  held  at  Ohio  state  university  in   November, 

1919. 

(i)  Is  it  true  at  Ohio  state  university,  as  President 
Hadley  of  Yale  said  it  was  generally  true,  that  "the  present 
method  by  which  the  graduate  departments  of  our  universities 
attempt  to  train  research  students  in  almost  every  subject 
indiscriminately  results  in  waste  of  money,  loss  of  efficiency, 
and  over-production  of  third  rate  research  men"  ? 

(2)  In  what,  if  any,  subjects  ought  Ohio  state  university 
not  to  try  to  do  research  work  or  even  other  forms  of  graduate 

work? 

(3)  If  President  Hadley's  advice  is  followed  to  develop 
research  where  it  is  now  strong  in  resources  and  students, 
rather  than  to  build  up  the  weaker  lines  to  a  common  level, 
where  does  Ohio  state  university  research  and  graduate  work 
need  more  or  less  support? 

(4)  What  is  being  done  and  what  might  be  done  to  make 


4^8  REl'CJKT  OF  JOINT   LEGISLATIVE  COMMITTEE 

sure  that  Ohio  state  university  is  not  committing  "a  crime 
against  society  by  subsidizing  graduate  students  unless  there  is 
prospect  that  the  students  thus  subsidized  will  find  a  demand 
for  their  services  afterwards"  ? 

(5)  How  many  men  who  have  received  scholarship  aid 
from  Ohio  state  university  in  the  last  twenty  years  have  "failed 
to  go  into  research  or  teaching  work  afterward"? 

(6)  .How  many  "have  done  badly  or  indijfferendy  in  those 
lines  as  compared  vvith  the  number  that  have  done  well"  ? 

(7)  How  does  Ohio  stat-e  university  test  student  abilities 
and  demand  for  service  in  advance,  so  that,  as  President  Had- 
ley  suggested,  "no  man  can  expect  a  scholarship  merely  because 
he  is  needy  and  promising,  unless  there  is  some  specific  prom- 
ise that  he  will  do  work  for  the  public,  for  which  good  living 
wages  can  be  had,  after  he  has  finished  his  studies"? 

(8)  If,  as  Professor  Stieglitz  of  the  University  of  Chi- 
cago suggested,  "the  great  revolutionizing  discoveries  in  science 
have  been  made  as  a  rule  by  unexpected  observations  studied 
by  a  genius",  and  if  in  order  to  develop  fundamental  research 
all  we  need  is  to  "bring  a  maximum  number  of  minds  of  the 
genius  type  in  contact  with  observation",  how  can  the  graduate 
school  develop  contact  with  world  problems  that  need  to  be 
solved  so  that  research  ability  can  have  maximum  opportunities 
for  unexpected  observations? 

(9)  If  the  University  of  Michigan  can  secure  funds  from 
private  business  for  promoting  pure  research  and  developing 
research  understudies,  where  they  originally  sought  to  deprive 
the  university  of  a  research  professor,  what  steps  can  Ohio's 
graduate  school  take  to  interest  Ohio's  business  men  in  keeping 
intact  a  strong  training  school  for  scientific  investigation  at 
Ohio  state  university? 

(10)  If,  as  Dean  Ford  of  the  University  of  Minnesota  re- 
ported, "we  people  right  in  our  own  universities  have  not  laid 
the  very  best  basis  of  co-operation  upon  which  a  national  re- 
search co-operative  program  can  be  brought  about",  how  can 
co-operation  among  departments  represented  in  Ohio's  graduate 
school  be  increased  ? 

10  —  That  the  annual  report  for  the  graduate  school  analyze  its 
clientele,  its  buildings,  its  forward  steps,  and  its  principal  needs. 
There  is  no  better  way  to  improve  the  work  of  the  graduate 
school  and  to  foster  its  research  than  to  apply  the  principles 
of  scientific  research  to  the  graduate  school's  own  problems 
and  work.  It  would  make  it  easier  to  secure  high  grade  work 
from  the  graduate  council  if  the  annual  report  summarized  the 
problems  presented  to  the  council  and  their  principal  actions. 


ON    ADxMINISTRATIVE   REORGANIZATION  429 

ORGANIZATION  FOR  RESEARCH 

Among  the  suggestions  made  to  this  committee  by  faculty  members 
and  by  city  and  county  superintendents  of  schools,  there  appears  fre- 
quently the  plea  for  more  research,  more  men  capable  of  research,  more 
men  who  will  insist  upon  opportunities  for  research,  more  facilities  for 
research,  more  time  for  research,  more  helping  the  state  through  re- 
search, more  training  of  students  in  the  methods  of  research  by  having 
them  do  research  work. 

These  demands  for  greater  benefits  from  and  more  attention  to  re- 
search come  by  no  means  exclusively  from  the  full  professors  at  the  Ohio 
state  university  or  even  from  younger  men  on  its  instructional  stafif. 
Faculty  groups  at  Miami  and  individual  instructors  at  Ohio  university. 
Bowling  Green  and  Kent  and  several  private  colleges  insist  that  Ohio 
cannot  longer  in  fairness  either  to  her  scholarship  or  to  her  material 
interest  afiford  the  restricted  opportunities  for  research  which  have  here- 
tofore been  supplied. 

Instead  of  being  jealous  of  the  senior  college  and  graduate  school 
at  the  Ohio  state  university  other  institutions,  including  private  colleges, 
have  suggested  that  it  would  materially  strengthen  their  power  to  com- 
pete for  instructors  and  for  students  with  out-of-Ohio  institutions  if  at 
the  Ohio  state  university  there  were  opportunities  and  inducements  for 
research  comparable  to  those  in  other  states. 

Nor  does  this  demand  for  research  opportunities  refer  only  to  the 
Ohio  state  university.  From  the  normal  schools  come  reasons  why 
within  normal  schools  there  should  be  research  into  educational  problems 
and  practices.  On  the  faculties  at  Miami  and  Ohio  universities  are 
scholars  who  believe  that  Ohio's  ability  to  draw  strongest  teachers  will 
require  provision  at  these  other  Ohio  institutions  for  research  work 
during  the  working  time  for  which  the  state  pays. 

By  research  many  different  lines  of  advanced  study  are  meant. 

There  is  scientific  research  which  seeks  new  truths  for  truth's  sake, 
—  for  the  sake  of  adding  tO  the  sum  of  human  knowledge  —  with  little 
or  no  reference  to  the  practical  value  of  the  new  truth  that  may  be  dis- 
covered. 

Then,  there  are  many  forms  of  ultilitarian  research  such  as  those 
conducted  by  the  engineering  experiment  station,  for  which  the  college 
of  engineering  was  recently  given  a  fund,  and  the  studies  and  experi- 
ments of  the  college  of  agriculture  into  production  costs  of  food  and  best 
methods  in  animal  husbandry. 

Another  type  of  "service  research",  i.  e.,  practical  research  of  in- 
estimable social  value,  is  the  agricultural  extension  work  which  is  ver- 
itably "making  over"  rural  life.  An  equally  needed  service  is  outlined 
in  the  three  research  bureaus  which  the  trustees  of  the  Ohio  state  uni- 


430  REPORT  OF  JOINT   LEGISLATIVE  COMMITTEE 

versity  have  authorized  but  not  yet  financed,  —  for  business  research  and 
service,  social  research  and  service,  governmental  research  and  service. 

Finally,  there  is  training  in  research  for  each  of  the  subjects  in  the 
graduate  school  including  the  different  kinds  and  forms  of  field'  work 
which  each  department  could  and  should  organize. 

For  not  one  of  these  kinds  of  research  are  there  now  adequate  facil- 
ities, program,  professors,  or  students. 

During  the  week  December  8-14,  1919,  the  time  given  to  research 
was  reported  by  165  full  professors  in  five  state  institutions.  Only  those 
professors  appeared  in  this  total  whose  duties  are  almost  entirely  instruc- 
tional. For  example,  all  deans  but  one  are  omitted.  Of  165  full  pro- 
fessors III,  or  66  per  cent,  or  two  out  of  three,  reported  not  one  minute 
of  scientific  research;  56  of  99  at  the  Ohio  state  university;  20  of  25 
at  Ohio  university;  13  of  17  at  Miami  university;  9  of  10  at  Bowling 
Green  normal  college,  and  13  of  16  at  Kent  normal  school. 

If  we  add  the  26  others  who  reported  some  research  but  less  than 
one  hour  a  day  we  have  a  total  of  137  out  of  165,  or  83  per  cent,  or  six 
out  of  seven,  who  reported  either  no  research  at  all  or  less  than  one 
hour  a  day. 

Two  possibilities  of  serious  error  exist  in  these  figures :  This  week 
may  have  been  far  below  the  average  without  the  fact  being  realized  for 
lack  of  records  for  previous  weeks,  and  Sunday  is  omitted,  which  may 
have  been  a  mistake.  While  many  men  threw  their  Sunday  work  into 
the  other  six  days,  a  few  have  informed  your  committee  that  their  re- 
search is  done  chiefly  on  Sunday.  Sunday  was  dropped  from  the  origmal 
blank  as  the  result  of  a  conference  where  it  was  urged  upon  your  com- 
mittee that  university  work  should  be  so  organized  that  no  essential  part 
of  it  will  depend  upon  Sunday. 

For  this  study  of  organization  the  details  for  each  of  the  institutions 
are  not  given.  In  the  section  on  the  Ohio  state  university  details  are  given 
for  the  two  groups,  full  professors  and  instructors.  The  blanks  upon 
which  these  facts  were  reported  contain  material  that  would  be  invaluable 
for  later  studies  and  correlations  by  administrative  officers  and  the  col- 
lege of  education.  If  such  use  is  not  desired  in  Oliio  the  institute  for 
pubHc  service  will  be  grateful  for  the  privilege  of  retaining  them. 

The  large  number  of  full  professors  in.  five  institutions  who  reported 
no  research  work  at  all  and  the  other  considerable  number  who  reported 
less  than  an  hour  a  day  should  be  read  against  the  backgrotmd  of  two 
beliefs  that  are  current  among  full  professors: 

1 .  The  highest  efficiency  in  teaching  is  impossible  where  there  is 
no  research  ambition  together  with  research  opportunity  and 
achievement. 

2.  The  state  of  Ohio  in  its  appropriations  and  in  its  assignment 
of  work  has  failed  to  make  allowance  for  research  and  has, 
therefore,  discouraged  it  or  made  it  impossible. 


ON    ADMINISTRATIVE   REORGANIZATION  43 1 

Whether  the  beHef  that  research  is  indispensable  to  competent  teach- 
ing is  true  or  unsound,  the  fact  remains  that  the  world  of  scholarship  in 
the  United  States  had  for  nearly  two  generations  accepted  it  as  true. 
Practically  every  full  professor  at  the  Ohio  state  university  would  prob- 
ably declare  this  belief  as  would  the  majority  of  full  professors  at  the 
other  four  state  institutions.  Probably  the  great  majority  of  instructors 
would  insist  that  hope  for  research  opportunity  to  make  a  record  in 
scholarship  was  one  of  the  factors  which  drew  them  into  college  teaching. 

Either  Ohio  must  prove  that  research  is  not  necessary  for  efficient 
instruction  and  for  the  development  and  contentment  of  faculties  or 
else  it  must  provide  the  opportunities  now  denied. 

This  problem  is  the  legislature's  problem  and  the  governor's  and 
the  public's  and  lay  trustees'  and  is  not  a  trifling  detail  to  be  settled  by 
faculties,  officers  and  trustees. 

If  faculty  conviction  regarding  research  is  not  changed  and  if  Ohio 
fails  to  make  allowance  for  research  in  its  time  schedules,  then  Ohio 
must  give  up  the  hope  of  attracting  and  holding  scholars  of  first  rank. 

The  little,  too  little,  research  reported  by  Ohio  faculty  members 
equipped  for  scholarly  attainment,  including  many  who  are  widely  re- 
puted for  scholarly  attainment,  is  undoubtedly  somewhat  less  than  would 
have  been  reported  in  earlier  years. 

The  problem  of  readjustment  after  the  war  and  the  experience  with 
the  Students'  Army  Training  Corps  would  have  reduced  the  time  avail- 
able for  research  even  had  there  been  no  increase  in  registration  and  no 
depletion  of  teaching  staff  because  of  resignations. 

Another  deterrent  or  obstacle  to  research  is  the  actual  condition 
of  the  teaching  organization,  especially  at  the  Ohio  state  university, 
which  has  been  literally  "shot  to  pieces."  The  unexpected  increase  in 
registration  called  for  a  large  increase  in  the  teaching  staff.  There  was 
enough  pirating  by  other  institutions  to  nearly  break  up  the  teaching  staff. 
Of  19  staff  members  in  the  college  of  commerce  and  journalism  w^ho  left 
in  June,  1919,  expecting  to  return  to  the  university,  only  seven  were  on 
the  payroll  six  month  later.  President  Thompson,  speaking  to  your  com- 
mittee, declared  that  the  university  was  so  ill-prepared  to  take  care  of 
the  large  freshman  classes  and  to  meet  this  unexpected  loss  of  teachers 
that  it  was  compelled  to 'use  even  undergraduates  and  was  "reluctantly 
giving  these  young  people  less  qualified  teachers  and  less  favorable 
working  conditions  than  they  had  in  their  home  high  schools  last  year." 

Under  such  conditions  there  has  necessarily  been  a  decrease  in  the 
time  and  strength  left  for  scientific  research.  Because,  however,  it  is 
these  conditions  which  are  affecting  the  state,  the  facts  reported  on  time 
sheets  are  given  as  professors  reported  them. 


432  REPORT   OF   JOINT   LKC.ISLATIVE   COMMITTEE 

Typical  of  suggestions  which  came  to  your  committee  from  faculties 
are  these : 

1 .  University  teachers  should  have  time  for  research  work  and 
opi>ortunity  for  publishing  the  results. 

2.  Engineering  teachers  should  have  time  for  investigating  and 
developing  work  in  tlie  unconimercialized  field  of  pure  science. 

3.  Research  in  business  and  social  problems  should  be  done  by 
university  departments  that  have  special  training  in  subjects 
under  investigation. 

4.  Research  in  business  and  social  problems  should  be  established 
with  proper  equipment  and  housing. 

5.  Research  in  veterinary  pathology  is  needed. 

6.  Medical  research  should  be  fostered. 

7.  Research  in  educational  problems  should  be  treated  as  indis- 
pensable. 

8.  In  agriculture  many  kinds  of  research  are  needed,  the  field  of 
farm  machinery  being  almost  untouched. 

9.  The  Ohio  state  miiversity  should  equip  itself  to  lead  and  super- 
vise research  work  done  by  faculties  in  other  Ohio  universities. 

10.  In  the  field  of  education  where  the  lack  of  research  leadership 
and  facilities  is  especially  felt,  the  Ohio  society  of  education 
has  outlined  a  plan  by  which  the  individual  members,  and  the 
colleges  and  teacher  training  schools  they'  represent,  may  work 
with  the  state  department  of  public  instruction  (and  of  course 
with  the  state  teacher  training  schools)  "to  study  scientifically 
special  phases  of  educational  problems." 

A  striking  summary  of  the  situation  comes  from  the  college  of 
engineering,  the  Ohio  state  university,  in  an  ai)]ieal  for  scientific  research 
for  its  own  sake,  for  the  state's  sake,  for  the  student's  sake,  and  for  the 
development  of  the  teacher.  Because  of  its  suggestion  that  university  re- 
search should  utilize  practical  engineering  problems  in  the  industrial  field, 
and  because  of  its  clarity  and  forcefulness,  the  letter  is  repeated  in  full 
with  our  black-tyjiing  for  emphasis,  in  the  five   following  paragraphs : 

Engineering  cannot  be  properly  taught  by  persons  who  have  an 
inadequate  idea  about  what  modern  engineering  is.  To  have  an 
adequate  idea  in  this  matter  one  must  at  least,  to  some  extent  be 
a  producing  engineer  oneself. 

It  is  becoming  increasingly  difficult  for  teachers  to  establish 
connections  with  commercially  producing  concerns.  To  do  so  one 
must  have  acquired  a  considerable  reputation,  or  else  be  in  a  position 
to  suggest  new  and  promising  lines  of  technical  development.     For 


ON    ADMINISTRATIVE   REORGANIZATION  433 

both  purposes  it  is  necessary  that  the  teacher  inside  the  University 
should  feel  himself  as  an  active  worker  for  technical  progress  and 
feel  industrial  problems  as  his  own. 

This  is  only  possible  if  he  is  given  time  and  support  for  investi- 
gation and  development  work  inside  the  institution  with  which  he  is 
connected.  Younger  men  should  be  regularly  employed  in  such 
work  for  a  considerable  part  of  their  time.  Men  of  higher  rank 
should  be  given  a  sufficient  number  of  assistants  to  enable  them  to 
turn  their  insight  and  experience  into  productive  use  even  though 
their  time  may  be  largely  taken  up  by  teaching  or  administrative 
work.  At  the  present  time  even  leading  members  of  the  engineering 
faculty  are  forced  to  waste  a  considerable  part  of  their  time  on  tasks 
which  in  commercial  concerns  are  regularly  performed  by  office  boys, 
stenographers,  and  clerks,  not  to  mention  technical  assistants. 

Going  outside  the  engineering  departments  to  the  purely  scien- 
tific department,  it  might  be  stated  that  if  at  all  universities  as  little 
time  were  allowed  for  scientific  research  as  in  a  number  of  scientific 
departments  at  the  Ohio  State  University,  then  there  would  be  no 
science  to  teach. 

Commercial  concerns  in  their  research  have  to  look  to  profit 
today  or  tomorrow.  It  is  up  to  the  men  at  the  institutions  of  higher 
learning  to  discover  the  entirely  new  and  unforeseen  possibilities 
hidden  in  the  as  yet  uncommercialized  outlying  fields  which  pure 
science  ofters.  Teachers  who  are  barred  from  this  sort  of  work  must 
feel  that  they  are  relegated  to  the  rear,  that  they  are  mere  hangers- 
on,  and  this  feeling  will  soon  rob  their  teaching  of  all  spirit  and  en- 
thusiasm. 

The  first  step  for  Ohio  to  take  is  to  ask  the  five  boards  of  trustees 
to  ascertain  man  for  man  and  department  for  department  why  research 
is  at  such  a  low  ebb  among  its  full  professors.  Is  it  because  teaching 
hours  are  too  many  and  teaching  load  too  heavy?  Is  it  because  they 
have  too  many  administrative  duties?  Is  it  because  of  any  question  in 
their  minds  as  to  the  importance  of  research  or  as  to  the  worthwhileness 
of  it  in  cases  where  adequate  facilities  are  lacking?  Is  there  lack  of 
prestige  attaching  to  research  or  is  the  difference  between  Ohio's  insti- 
tutions and  some  of  their  fellow  institutions  in  other  states  not  so  much 
in  the  amount  of  'profitable  research  as  in  the  absence  of  a  research  cult 
that  fosters  talk  about  research  without  actually  stimulating  research  ? 

Excess  of  time  given  to  instructional  duties  will  not  entirely  ac- 
count for  the  absence  of  research.  Meeting  classes,  preparing  for  them, 
reviewing  papers,  interviewing  students  and  conferring  about  them  oc- 
cupied a  week  of  the  conventional  39  hours  in  the  case  of  only  38  of  in 
professors  reporting  no  research.     For  36  others,  instructional  duties  oc- 


434  REPORT   OF  JOINT   LEGISLATIVE   COMMITTEE 

cupied  less  than  30  hours  a  week ;  two  had  less  than  9  hours ;  two  from  10 
to  12  hours;  three  from  12  to  15  hours;  7  from  16  to  20  hours;  12 
had  fewer  than  20  hours  of  instructional  duties. 

The  total  working  week  of  the  professional  group  leaves  little  time 
for  research  as  the  following  statement  shows  as  issued  to  the  news- 
papers early  in  January  by  your  secretary: 

Are  university  professorships  easy  berths  and  snaps  ?  Do  university 
professors  live  a  life  of  leisure?  Not  if  the  159  Ohio  teachers,  ranking 
as  professors,  w^ho  recently  reported  the  details  of  one  working  week 
to  the  joint  legislative  committee  on  administrative  reorganization,  are 
typical  of  their  craft. 

These  159  professors,  in  three  universities  and  two  normal  schools, 
reported  7141  hours  spent  on  work  required  by  the-  state.  This  is  an 
average  of  45  hours  per  professor.  Because  this  average,  however,  con- 
tains the  shorter  as  well  as  the  longer  working  weeks,  it  fails  to  show 
many  cases  of  what  labor  outside  of  college  walls  would  call  "overwork," 
and  a  few  cases  of  almost  "doing  time." 

Of  the  five  faculties  108  full  professors  report  a  working  week, 
excluding  Sunday,  of  over  40  hours  required  by  the  state;  137  a  week  of 
over  36  hours;  43  a  week  of  over  50  hours;  12  a  week  of  over  80  hours, 
and  five  a  week  of  over  70  hours.  One  at  the  Ohio  state  university  re- 
ported 92  hours. 

Nor  is  this  all  the  time  involved  in  working  as  a  professor  for  Ohio. 
To  the  foregoing  totals  should  be  added  336  hours,  equal  to  two  hours 
apiece,  for  professional  study  and  research.  The  largest  amount  of  time 
spent  by  any  professor  for  these  two  purposes,  which  are  no  less  neces- 
sary for  successful  work  even  though  not  specifically  required  by  the 
state,  was  19  hours  at  the  Ohio  state  university,  Ohio  university,  and 
Miami;  10  hours  at  Bowling  Green  and  11  hours  at  Kent  normal  school. 

Where  do  the  professors  put  in  all  this  time?  Not  all  of  it  with 
classes,  of  course,  but  besides  meeting  classes,  they  must  prepare  for 
meeting  them,  and  must  attend  to  the  results  of  meeting  them,  as  by 
marking  written  answers,  reviewing  note  books,  and  interviewing  stu- 
dents. Largest  amounts  of  time  given  to  individual  talks  with  students 
were  6  hours  at  the  Ohio  state  university  and  Ohio  university,  12]/^ 
hours  at  Miami,  4  hours  at  Bowling  Green,  4J/2  liours  at  Kent. 

Our  committee  hopes  that  taxpayers  and  teachers  throughout  the 
State  will  study  these  facts,  which  indicate  that  during  the  academic  year 
Ohio  professors  have  little  leisure  time  in  which  "Satan  can  find  mis- 
chief for  idle  hands  to  do."  Whether  the  teaching  load  and  the  other 
duties  incident  to  working  for  Ohio  as  professor  are  equitably  distributed, 
it  is  not  easy  for  the  faculties  themselves  and  their  officers  to  ascertain. 
Lessons  bearing  upon  organization  will  l)c  drawn  from  these  figures  l)y 
our  committee  in  its  final  report. 


ON    ADMINISTRATIVE   REORGANIZATION  435 

The  question  is  not  how  many  hours  does  a  full  professor  work  but 
are  conditions  such  that  his  time  goes  to  service  of  greatest  help  to 
students  of  the  state.  Analysis  raises  the  question  whether  Ohio  faculties 
are  not  giving  altogether  too  much  time  to  work  that  might  be  done  by 
clerks. 

Not  including  research  for  which  with  two  exceptions  provision  is 
made  by  Ohio  and  which  therefore  falls  into  personal  work,  the  total 
time  of  165  full  professors  in  five  institutions  was  distributed  as  per  the 
accompanying  chart.  At  the  Ohio  state  university  29  per  cent  of  the 
•  time  given  to  the  state  by  full  professors  went  to  non-instructional  work. 
If  even  20  per  cent  had  gone  to  research  and  only  9  per  cent  to  non- 
instructional  duties,  it  would  have  been  a  more  business-like  use  of  this 
valuable  time  and  would  have  accomplished  much  for  research. 

After  due  allowance  is  made  for  interferences  beyond  faculty  con- 
trol the  fact  remains  that  there  is  still  vastly  less  research  than  time 
permitted.  Important  questions  that  should  be  answered  by  the  insti- 
tutions concerned  and  by  the  legislature  representing  the  public  which 
needs  the  result  of  research  work,  include  these :  What  is  it  that  keeps 
these  faculty  members  from  doing  research  work  ?  Why  do  they  question 
its  value  so  far  as  any  of  them  may?  What  specific  research  plan  has 
been  interfered  with?  What  would  they  like  to  do  if  conditions  were 
favorable,  etc.  ?  For  answering  such  questions  we  have  proposed  a 
bureau  of  administrative  research  within  each  institution  together  with 
exacting  audits  of  research  costs,  methods  and  results,  by  the  auditor  of 
state,  budget  commissioner,  finance  committee  of  the  legislature  and  the 
state  department  of  public  instruction. 

A  special  co-operative  study  is  needed  at  the  Ohio  state  university 
for  the  purpose  of  working  out  a  scientific  method  acceptable  to  all 
departments : 

1 .  For  budgeting  time  and  funds  for  research  by  faculty  members. 

2.  For  changing  courses  of  study  so  that  more  research  and  par- 
ticipation in  research  will  be  possible  and  necessary. 

3.  For  testing  the  value  of  proposed  research  and  of  the  proposed 
researcher's  capacity  for  research,  before  an  investment  is 
made  in  it. 

4.  For  interim  tests  of  progress. 

5.  For  tests  of  final  results  to  decide  the  scientific  value  of  each 
contribution,  the  lessons  contained  in  it  for  various  university 
and  state  departments,  and  the  best  methods  of  giving  cur- 
rency to  its  findings. 

6.  For  training  researchers  in  putting  their  results  in  a  form 
that  will  be  not  only  correct  in  diction  but  readable,  interest- 
ing and  convincing. 


43^  REPORT   OF   JOINT   LEGISLATIVE   COMMITTEE 

Talk  about  research  is  not  research.  Desire  to  research  is  not  the 
same  as  ability  to  research.  Little  headway  can  be  made  in  formal  allot- 
ments or  budgeting  of  state  funds  or  state  time  among  research  projects 
unless  faculties  themselves  will  abandon  the  idea  that  one  piece  of  work 
dubbed  research  is  just  as  important  as  any  other  research  project,  and 
will  accept  the  businesslike  proposition  that  research  must  be  proved 
in  advance  to  promise  worthwhile  additions  to  knowledge  or  aid  that  will 
be  desirable  or  necessary  tomorrow. 

Thus  far  the  Ohio  state  university  is  singularly  free  from  cant  and 
pretense  respecting  research.  Distinguished  studies  have  been  made  by  the 
faculty  members.  The  scholarship  of  the  Ohio  state  university  educators 
has  been  repeatedly  recognized  by  out-of-Ohio  institutions  who  have 
outbid  Ohio  for  their  service.  The  greatest  need  now  is  for  officers 
and  faculties  to  marshal  facts  about  the  need  for  research  by  faculty 
and  students  so  that  trustees,  budget  commissioner,  governor,  legislature 
and  public  will  see  that  it  is  to  the  public  interest  both  to  finance  and  to 
demand  an  attitude  and  practice  of  research  in  state  institutions  of  learn- 
ing. 


MEDICAL  AND  NEAR-MEDICAL  COLLEGES,  O.  S.  U. 

Besides  the  college  of  medicine,  Ohio  state  university  has  three 
medical  and  near-medical  colleges :  homeopathic  medicine,  pharmacy, 
vetinary  medicine. 

It  is  recommended 

1  —  That  the  work  done  by  the  college  of  homeojiathic  medicine 
and  the  college  of  pharmacy  be  incorporated  in  the  college  of  medicine: 

2  —  That  serious  consideration  be  given  to  the  i)ossibility  of  merg- 
ing the  college  of  veterinary  medicine  and  thic  college  of  agriculture  foi 
purposes  of.  administration. 

The  more  colleges  the  university  has.  the  more  deans  it  nuist  have, 
and  the  more  administrative  machinery. 

The  more  deans  there  are.  the  more  difiioull  it  will  ])e  to  ])lace 
the  salaries  of  deans  at  the  point  which  will  he  necessary  to  secure  and 
retain  men  of  sufficient  ability  for  such  important  i)ositions. 

.Alihough  the  college  of  i)h;irniacy  now  hris  an  acting  dean  there 
will  be  constant  ])ressin-e  to  recognize  the  college  by  giving  it  a  dean. 
.■\s  soon  as  tluM-e  is  a  di'an,  iiressnre  will  begin  against  any  discrimi- 
nation and  for  the  same  s,il:ir\-  that  otlicr  deans  have.  Trofcssional 
men  ac(piaintcd  with  the  respet'tix'e  fu'lds  of  niedic-ine  and  pharniac\- 
have  assured  Nour  ctmniittee  that  there  is  no  reason  wh\-  the  dean  of 
the  college  of  medicine  should  not  do  the  deaning  for  the  college  of 
]>harmacy  as  well  as  for  physiology  or  public  health  or  bacteriology. 


ON    ADMINISTRATIVE    REORGANIZATION  437 

In  the  typical  week  used  for  recording  teaching  and  non-teaching 
loads  the  acting  dean  of  the  college  of  pharmacy  gave  43  hours  to 
instructional  duties  and  eight  hours  to  non-instructional  duties.  On  this 
record  the  acting  dean  gives  all  the  time  he  contracts  for  to  instruc- 
tional work  and  "throws  m"  his  (leaning.  The  argument  for  trans- 
ferrmg  the  duties  of  deanship  from  this  ofhce  to  the  college  of  medicine 
rests,  therefore,  upon  other  grou.nds  than  diversion  of  teaching  energy 
by  this  acting  dean. 

As  to  the  veterinary  medicine  it  is  quite  unorthodox  to  suggest 
that  it  be  made  part  of  the  college  of  agriculture.  It  is  even  true  that 
the  college  of  veterinary  medicine  deals  with  several  classes  of  patients 
—  such  as  decorative  dogs  —  that  are  not  involved  in  the  agricultural 
course  of  study.  In  spite  of  these  two  facts  there  is  reason  to  believe 
that  it  would  help  both  the  college  of  agriculture  and  the  college  of 
veterinary  medicine  if  the  latter  were  abandoned  as  a  separate  college 
and  its  work  incorporated  under  the  dean  of  the  college  of  agriculture. 
Veterinary  work  for  horses  and  cattle  is  the  most  important  veterinary' 
work  which  veterinarians  have  to  do.  The  co-ordination  of  medical 
attention  to  agricultural  animals  with  the  agricultural  purposes  these 
animals  serve  will  help  the  state. 

The  dean  of  the  college  of  agriculture  is  now  paid  $4800  or  $800 
more  than  the  other  deans.  He  must  have  a  well-ecpiipped  central 
office.  It  would  cost  much  less  to  have  the  deaning  of  the  veterinary 
medicine  done  in  this  office  than  to  organize  it  separately.  What  is 
more  imporiatit  still,  the  dean  of  the  college  of  agriculture  would 
have  more  reason  than  has  the  dean  of  a  separate  college  for  develop- 
ing the  veterinary  college,  for  ha^•ing  it  known  throughout  the  state 
and  for  seeing  that  agricultural  counties  are  supplied  with  professional 
skill. 

During  the  four  years  1913-1917  Ohio  residents  numbering  i  [8 
were  graduated  from  this  college,  39  or  over  25%  from  Franklin 
county,  57  or  nearly  4o9f  from  Jackson  and  contiguous  counties ;  30 
counties  had  no  graduates.  In  November  1919  there  were  but  45 
Ohio  residents  in  this  college,  18  or  40%  from  Franklin  county,  69 
counties  having  no  students.  The  56  non-residents  who  graduated 
in  four  years  and  57  non-residents  out  of  102  who  registered  this 
year  are  reasons  for  placing  the  promotion  of  this  college  under  an 
officer  whose  interest  is  not  primarily  in  veterinary  medicine  but  in 
the  economic  interests  of  Ohio  which  veterinary  medicine  can  help. 

In  suggesting  that  the  college  of  homeopathic  medicine  be  merged 
with  the  college  of  medicine  it  is  recalled  that  already  the  princijile 
of  merging  has  been  frankly  recognized.  Already  the  great  majority 
of   subjects   needed   for   medical   practice   are   taught    for  both   colleges 


4,^S  KKl'OKT   OF   JOINT    LKGISLATIV1-:   COMMlTTEIi 

by  the  college  of  medicine,  for  cxamj.lc.  anatomy,  hactcrioloiry.  obstetrics, 
physiology,  surgery,  etc. 

For  only  two  reasons  can  a  separate  college  of  homeopathic  medicine 
be  urged :  one,  that  the  medicines  which  it  ]>rescribes  are  difTerent 
either  in  character  or  (|uantity  or  both,  the  other  that  homeopathy  has 
a  distinguished  past  which  should  be  preserved  in  name  and  organization. 

Whatever  distinction  there  is  between  the  teaching  of  medicine 
in  the  college  of  homeopathic  medicine  and  the  teaching  of  medicine 
in  the  college  of  medicine  can  easily  continue  to  exist  under  one  college 
with  provision  for  separate  instruction  in  homeopathic  medicine.  This 
would  serve  every  purpose  of  those  ]>ractitioners  who  continue  homeo- 
pathy and  who  want  their  sons  or  understudies  to  have  instruction  in 
the  same  school. 

The  argument  for  a  separate  school  is  primarily  sentimental.  The 
way  to  meet  it  is  to  appeal  to  this  sentiment  and  to  show  that  in  the 
long  run  there  will  be  more  deference  for  homeopathy's  past  if  Special 
courses  are  incorporated  in  the  general  college  of  medicine  than  if 
homeopathy  limps  along  with  an  ever  decreasing  number  of  students. 

In  the  Aear  1919-1920  there  were  but  21  Ohio  residents  registered 
at  the  college  of  homeopathic  medicine:  7  from  Franklin  county;  4 
from  Cuyahoga ;  2  from  Montgomery  and  one  each  from  Champaign. 
Darke,  Greene.  Hamilton,  Henry,  Lake,  Medina,  Washington  ;  and  none 
from  yy  Ohio  counties. 

In  the  four  years  from  September  1913  through  June  i<;i7  there 
vv^ere  29  Ohio  graduates  from  13  counties,  and  none  from  "j^  counties. 
Yet  there  is  a  special  college,  a  special  dean,  s]:)ecial  office  overhead, 
a  special  hospital. 

H  homeopathy  were  a  new  and  growing  sect,  if  it  represented 
some  new  i>rinci])le  which  the  world  was  bound  to  adopt,  it  would 
be  progressive  of  a  state  like  Ohio  to  give  it  a  chance  and  to  back- 
it  during  its  "infant  industry"'  (la\s.  Ihit  that  is  not  the  case  with, 
homeopathic  medicine. 

In  the  year  1918,  in  all  tlie  country,  there  were  340  students 
registered  in  the  six  honieojiatliic  colleges  rmd  114  j^raduates.  This 
is  a  decrease  in  students  sinee  Kpo  of  from  <jO()  to  540  and  in  grad- 
uates froni  413  to  I  14.  This  condition  is  no  news  to  followers  of 
homeopathy.  .\t  tlie  annual  national  convention  held  in  Cincinnati 
in  the  •mtumn  of  \^\\<^)  tlie  future  of  lliat  ^chnol  of  medicine  seemed 
so  alarming  ihal  a  recruiting  iirograni  was  adopted.  In  the  medical 
profession  it  is  alniost  nniversalK-  d'  ubU'd  e\-en  among  homeopathic 
j-ihysicians  tbemscKis  wlielher  pn.i)aganila  or  money  can  e\  er  restoiX' 
to  homeopathy  a  numericallv  signilicanl   ])osition. 


ON    ADMINISTRATIVE   REORGANIZATION  439 

All  of  this  was  known  to  the  world  when  Ohio  state  university 
as  recently  as  1914  established  its  separate  college  of  homeopathic 
medicine.  Four  years  had  passed  since  the  Carnegie  foundation  had 
proved  "the  ebbing  vitality  of  homeopathic  schools."  In  fact,  the 
superiority  of  one  college  over  two  colleges  of  medicine  was  so  well 
known  that  the  proposal  would  unquestionably  have  been  unanimously 
rejected  if  it  had  not  been  that  it  came  wnth  an  ofifer  of  money  from 
private  sources.  Repeatedly  since  its  opening  and  in  fact  within  the 
last  few  months  private  gifts  have  been  made  or  announced.  When 
now  a  question  is  raised  about  this  separate  college  university  officers 
recall  that  the  college  has  made  influential  friends  and  led  to  important 
gifts  for  the  university. 

In  spite  of  gifts  and  even  if  private  gifts  should  lead  to  manv  new 
buildings  for  homeopathic  medicine  and  to  other  gains  to  the  university, 
it  is  certain  that  Ohio  state  university  cannot  afford  to  cut  in  two  its  in- 
terest in  medical  education,  its  program  for  training  physicians  and 
nurses,  its  responsibiliiy  for  developing  adequate  hospital  facilities,  its 
training  through  hospital  work,  anfl  its  clinical  resources  and  clinical 
training. 

Friends  of  the  homeopathic  school  can  surely  be  interested  in  what 
it  is  costing  preventive  medicine  and  other  medical  education  to  have 
a  divided  front  here  at  Ohio  state  university. 

Surely  they  cannot  fail  to  see  that  neither  money  alone  nor  money 
coupled  with  the  untiring  eft'ort  of  a  special  college  can  ever  give  homeo- 
pathy a  lead  or  even  a  substantial  following  among  the  younger  recruits. 

Surely  friends  of  this  spyecial  college  will  be  glad  to  sit  around  the 
same  table  with  the  officers  of  the  university  and  specialists  in  medical 
education  and  medical  practice  with  a  view  to  canvassing  the  non- 
personal,  non-accidental  and  scientific  reasons  why  homeopathy  as  a 
special  school  has  lost  ground.  Such  a  conference  would  unquestionably 
lead  to  an  overwhelming  vote  in  favor  of  merging  the  two  schools  ana 
of  expressing  future  interest  in  homeopathy  by  strengthening  special 
courses  in  materia  medica  within  one  general  college  of  medicine. 


440 


REPORT   OF   JOINT   LEGISLATIVE   COMMITTEE 


OHIO'S  STATE  PROVISION  FOR  TEACH  1<:R  TRAINING 

On  the  accompanying  map  is  a  clot  for  each  person  who  in  the 
autumn  of  1919  was  attending  one  of  Ohio's  six  state  teacher  training 
schools,  or  one  of  35  state  aided  county  normal  schools. 


JOINT  LEGISUTIVE  COMMITTEE    ON 
ADMINISTRATIVE    REORGANIZATION 


2400  TEACHERS 
IN  TRAINING    AT 
6  STATE.  35  COUNTY  SCHOOLS 

7000  NEW   T£ACHERS 
NEEDED    SEPTEMBER   1920 


In  addition  to 

2400  in  preparation  at  one  of  these  state  supported  schools  arc 

428   others    in    seven    schools    maintained    by    six   cities,    Akron. 

Cleveland,  Cincinnati.  C"()lunil)us,  Dayton.  Toledo;  and  still 
1792   others   in  26  private  colleges    whose    trainini^   of   teachers 

is  certified  by  the  state  department  of  public  instruction. 


ON    ADMINISTRATIVE    REORGANIZATION  44 1 

The  total  of 

4620  for  the  entire  state  includes  persons  who  are  taking  one, 
two,  or  three,  or  four  years  of  preparation  for  teaching.  It 
also  includes  a  handful  of  post  graduate  students  at  Ohio  state 
university's  college  of  education  v^dio  have  already  given  more 
than  four  years  to  their  preparation. 

Of  Miami's  total  Ohio  register  in  education  of  409  only  105  will 
complete  their  work  this  year.  Ohio  university  will  graduate  88  of  426, 
and  Ohio  state  university  will  graduate  about  100  of  410.  Of  209  at 
Kent  51,  and  of  240  at  Bowling  Green  49  will  graduate  this  year.  It  is 
these  smaller  figures  rather  than  the  total  enrollment  that  indicate  the 
output  of  the  four-year  and  two-year  courses.  From  the  total  output, 
again,  there  should  be  subtracted  from  10%  to  20%  for  those  graduated 
who  will  not  teach. 

In  26  private  colleges  254  of  641  graduates  of  education  in  June  or 
40%  do  not  expect  to  teach,  according  to  T.  Howard  Winters,  super- 
visor of  teacher  training  for  the  state  department  of  public  instruction. 

Where  Ohio  will  need  for  the  school  year  1920-1921  about  7000 
new  teachers  it  will  actually  send  out  from  its  own  state's  two-year  and 
four-year  courses  about  400.  "  From  its  35  state  aided  county  normal 
schools  it  will  turn  out  between  550  and  570.  All  told,  from  training 
schools  wholly  or  in  part  supported  by  the  state  there  will  be  turned  out 
fewer  than  1000  students  this  year  of  w^hom  probably  fewer  than  900 
will  teach  next  year. 

The  gap  between  7000  new  teachers  needed  and  900  teachers  gradu- 
ated, one  half  with  a  year's  training  and  one  half  with  two  to  four  years 
training,  will  be  filled  by  qualified  persons  from  schools  which  receive 
no  state  aid.  This  fact  shows  the  importance  of  considering  the  city  and 
private  training  schools  among  the  resources  of  the  state,  of  utilizing 
to  the  utmost  their  facilities  and  of  providing  enough  helpful  communica- 
tion and  supervision  to  give  all  schools  the  benefit  of  each  school's  best 
practices. 

The  state's  own  present  facilities  include  35  county  normal  schools 
for  36  counties ;  two  independent  state  normal  schools  at  Bowling  Green 
and  Kent ;  two  normal  schools  that  are  integral  parts  of  Miami  and  Ohio 
universities  at  Oxford  and  Athens;  a  normal  department  at  Wilber- 
force  for  negro  teachers ;  and  a  college  of  education  at  Columbus  which 
is  part  of  Ohio  state  university.  For  these  activities  the  annual  cost  is 
about  $250,000. 

On  paper  this  would  seem  to  be  a  fairly  complete  organization  for 
teacher  training  so  far  as  number  of  centers  is  concerned,  —  41  different 
centers  of  training  entirely  or  in  part  supported  by  the  state,  besides  7 
city  schools  and  29  private  colleges,  or  ^y  dififerent  officially  recognized 
training  centers  in  th^e  State  of  Ohio. 


44-  RliI'DKT   OF   J()I^•T   LKCISLATIVE   COMMlTTEl-: 

The  fact  that  the  state  department  of  public  instruction  is  held  re- 
sponsible for  the  certification  of  all  graduates  for  teaching  furnishes 
again,  on  paper,  evidence  of  commendable  organization. 

Yet  the  startling  fact  remains  that  all  of  these  schools  together  are 
training  but  a  small  fraction  of  the  total  number  of  new  teachers  who  are 
needed  each  year;  that  Ohio  is  losing  ground  in  its  supply  of  trained 
teachers ;  and  that  in  order  to  have  classes  and  schools  actually  in  charge 
of  teachers  it  has  been  necessary  to  lower  the  standard  by  issuing  tem- 
porary certificates  at  a  time  when  the  need  for  a  higher  standard  is  widely 
felt.  About  3000  temporary  certificates  have  been  issued  during  the  cur- 
rent school  year,  65  of  them  in  Franklin  County  almost  within  sight  of 
the  state  house. 

If  the  facilities  are  numerous  enough,  the  organization  theoretically 
adequate,  and  the  plan  for  central  supervision  satisfactory,  what  then 
can  explain  the  too  small  number  of  students  in  training  and  the  woefully 
inadequate  number  of  properly  trained  graduates  ?  Inadequate  use  has 
been  made  of  present  facilities. 

Now  is  a  propitious  time  for  Ohio  to  make  a  new  start  in  its  teacher 
training  program. 

A  reorganized  and  greatly  expanded  state  department  of  public  in- 
struction is  being  considered. 

It  is  expected  that  the  governor  will  shortly  name  a  new  state  super- 
intendent who  will  naturally  wish  to  surpass  all  predecessors  in  recruiting 
teachers. 

A  new  dean  is  to  be  selected  for  Ohio  state  university's  college  of 
education  and  he  will  naturally  wish  to  out-reach  and  out-grasp  his  pre- 
decessors. 

The  school  men  of  the  state  appreciate  as  never  before  the  need 
for  a  vastly  larger  program  and  a  vastly  more  aggressive  leadership 
on  the  part  of  both  the  state  department  of  public  instruction  and  the 
Ohio  state  university  in  not  only  supplying  teachers  but  in  recruiting 
the  ablest,  strongest,  and  very  elect  of  Ohio's  young  people  for  teaching. 

Teachers'  Week  \\as  the  beginning  of  a  state-wide  awakening 
to  the  need  of  government,  industry,  and  society  for  best  abilities 
in  teaching.  One  Ohio  editor  wrote  that  the  history  of  Teachers' 
Week  would  say,  not  tlirit  three  thousand  teachers  were  recruited, 
but  that  the  word  teaching  was  revolutionized.  While  this  judg- 
ment over-states  the  first  results  of  Teachers'  Week,  it  suggest  the  ulti- 
mate result  of  state  wide  team  work  by  educators,  editors,  legislators, 
and  governor  in  advertising  the  rewards,  opportunities  for  advancement, 
rapidly  improving  conditions  and  durable  satisfactions  of  teaching. 

The  slate's  present  organization  for  striking  this  note  in  recruiting 
and  training  teachers  is  adequate  so  far  as  concerns  institutional  facilities 
and  the  relations  of  one  institution  to  another.  Next  steps  call  not  so 
much  for  changes  in  organization,  cxcejit  those  involved  in  reorganizing 


ON    ADMINISTRATIVE   REORGANIZATION  443 

the  State  department  of  public  instruction,  as  for  selection  of  ablest  lead- 
ers for  the  state  department  of  public  instruction  and  Ohio  state  univer- 
sity's college  of  education. 

The  type  of  leader  needed  at  the  head  of  the  entire  school  sys- 
tem Avas  discussed  in  an  earlier  section.  It  is  suggested  that  your 
conunittee  formally  urge  the  trustees  of  Ohio  state  university  to 
adopt  immediately  the  increased  program  which  should  be  adopted 
for  the  college  of  education  and  to  secure  the  type  of  leader,  or- 
ganizer and  educator  needed  to  work  out  that  program. 

Publicity  should  be  given  at  once  to  the  importance  of  this 
post.  The  school  men  of  the  state  should  be  asked  to  make  sug- 
gestions regarding  work  to  be  done  and  men  available  for  leading 
in  that  work.  It  is  highly  important  that  the  trustees  reach  an 
early  decision,  or  at  least  arrange  for  extensive  and  attractive  pub- 
licity which  will  bring  into  the  summer  school  at  Columbus  the 
largest  number  of  Ohio's  school  men  and  women  who  have  ever 
yet  attended  an  Ohio^  summer  school.  There  is  special  need  for 
advanced  courses  which  will  attract  city  and  county  superintendents,  high 
school  and  elementary  principals,  supervisors,  and  graduate  students  in 
special  branches.  Ohio  should  not  enter  this  coming  summer  with  such 
inadequate  programs  at  Ohio  state  university  and  other  universities  and 
normal  schools  that  it  will  be  necessary,  or  seem  necessary,  for  1200  or 
1500  Ohio  school  workers  to  go  east  or  west  or  north  for  training  oppor- 
tunities at  a  cost  of  nearly  half  a  million  dollars. 

If  time  does  not  permit  the  trustees  of  Ohio  state  university  to 
make  a  final  selection  of  dean  for  the  college  of  education  before  the 
summer  session  of  1920,  it  might  seem  practicable  to  appoint  a  summer 
dean.  In  many  institutions  the  summer  schools  have  a  special  director. 
If  this  course  were  followed  a  salary  might  be  paid  for  the  summer  which 
would  prove  an  attraction  to  the  best  availaible  ability  without  raising 
for  final  settlement  the  question  of  how  much  should  be  paid  to  the 
regular  dean  of  this  college.  For  summer  sessions  particularly  the  ques- 
tion of  salary  is  a  strict  business  proposition  because  a  dean  of  special 
attracting  power  may  easily. return  more  than  his  salary  in  additional  fees. 
Similarly  instructors  who  make  special  appeal  to  school  men  often  bring 
in  through  increased  fees  far  more  than  their  summer  salaries. 

If  your  committee  issues  a  statement  upon  this  subject  the  pub- 
lic will  welcome  emphasis  upon  the  proposition  that  the  dean  who 
is  chosen  to  head  the  college  of  education  should  himself  love  teach- 
ing and  love  work  with  teachers;  should  in  his  own  personality  and 
attainment  be  a  convincing  advertiser  of  the  attractions  and  rew^ards 
of  teaching;  and  should  know  from  experience  and  observation  the 
needs  and  possibilities  of  public  schools  and  teacher  training  schools. 
Dr.  A.  E.  Winship  believes  he  should  have  successfully  taught  and  ad- 
ministered both  public  and  teacher  training  schools. 


444  REPORT   OF   JOINT   LF.GISLATIVE   COMMITTEE 

One  important  change  should  be  made  in  the  present  law  govern- 
ing the  college  of  education,  namely,  the  clause  in  section  7929  which 
prohibits  the  Ohio  state  university  from  ever  maintaining  a  "nor- 
mal schooP'  should  be  repealed. 

The  facts  which  prompted  the  passage  of  this  prohibition  no  longer 
exist,  or  rather  facts  are  availajble  which  show  that  vahd  reason  never 
did  exist  for  such  prohibition.  The  fear  that  Ohio  state  university 
would  duplicate  the  work  of  the  four  other  normal  schools  and  draw 
students  from  them  was  ill  founded.  As  shown,  the  registration  at 
each  of  the  five  institutions  is  largely  local.  If  a  normal  school  for  ele- 
mentary teachers  were  started  in  Columbus  for  students  residing  in  this 
central  district,  experience  shows  that  its  register  would  come  primarily 
from  Columbus  and  vicinity  and  that  few  of  those  who  are  now  going 
to  Bowling  Green,  Kent,  Athens  and  Oxford  would  shift  to  Columbus. 
Over  half  of  this  year's  register  in  the  Ohio  state  university's  college  of 
education  is  from  Franklin  County  and  almost  exactly  half,  204  of  410, 
come  from  Columbus  City;  the  total  from  Franklin  and  contiguous 
counties  is  258  out  of  410,  or  63%,  almost  two  out  of  three;  23  counties 
have  no  students,  21  counties  only  one  student. 

Instead  of  prohibiting  Ohio  state  university  from  conducting  a 
school  which  fits  teachers  for  teaching  in  elementary  schools  —  the 
sense  in  which  normal  school  was  used  in  the  act  —  the  legislature 
should  encourage  preparation  of  teachers  for  elementary  schools  by 
the  Ohio  state  university's  college  of  education.  A  state  that  is 
faced  with  a  shortage  of  3000  teachers,  mostly  elementary,  cannot  fairly 
close  the  doors  of  an  available  institution  to  young  people  wishing  to 
train  for  elementary  schools. 

The  four  normal  schools  of  the  state  are  all  giving  four-year  courses. 
It  is  also  true  they  are  all  giving  two-year  courses.  It  is  just  as  true  that 
many  students  drop  out  of  Ohio  state  university's  college  of  education 
at  the  end  of  their  first  or  second  year  and  that  they  go  into  elementary 
teaching.  In  other  words,  the  earlier  distinction  between  training  for 
elementary  and  training  for  high  school  is  rapidly  disappearing.  Reports 
to  your  committee  from  outside  the  state  show  that  state  after  state  is 
either  now  requiring  a  four-year  elementary  course  or  is  aiming  toward 
a  four-year  course  before  certifying  teachers  to  elementary  schools. 

There  is  another  reason  for  removing  this  barrier,  namely,  the  de- 
mand throughout  the  state  for  teachers  equipped  to  supervise  special  sub- 
jects that  are  being  taught  in  elementary  schools,  like  manual  training, 
physical  education,  dififcrent  vocational  arts,  instruction  of  ihe  sub- 
norn^.al,  etc. 

The  joint  committee  on  salaries  recommended  this  year  an 
appropriation  of  $10,000  to  be  spent  in  one  of  the  normal  schools 
for  special  training  in  the  instruction  of  sub-normal  pupils.  The 
present  plan  is  to  ])Ut  that  speci;il  training  in  a  small  cit}'  that  lacks 


ON    ADMINISTRATIVE    REORGAN  IZ  ATHON  445 

the  laboratory  facilities  necessary  for  successful  training".  The 
obvious  place  for  such  instruction  and  the  obvious  place  for  training 
specieJ  supervisors  is  not  in  the  country  or  in  a  small  town  far  from 
the  laboratories  of  mental  disease  and  industry,  but  in  Columbus, 
where  laboratory  and  material  exists  in  abundance. 

If  the  prohibition  against  training-  for  elementary  schools  is 
removed  Ohio  state  university  will  recognize  the  state-wide  need 
in  the  elementary  field  and  will  proceed  to  equip  itself  to  give  what- 
ever training  is  needed  whether  for  college,  junior  college,  high 
school,  junior  high  school,  grammar,  elementary,  kindergarten  or 
sub-normal.  In  modifying  the  law  it  will  not  be  desirable  to  pro- 
hibit the  .establishment  at  this  university  of  two  year  normal  courses 
for  residents  of  this  central  district  unless  it  is  decided  to  build  up 
the  city  normal  school  at  Columbus  through  state  aid.  If  later  it 
is  decided  to  restrict  the  attendance  at  the  Ohio  state  university  to 
senior  college  work,  such  restriction  should  not  be  applied  to  the 
college  of  education,  for  nothing  should  be  done  to  limit  the  number 
who  can  be  attracted  into  teaching  by  the  Ohio   state   university. 

One  vexing  problem,  that  of  securing  adequate  opportunities  for 
observing  and  practicing  in  regular  public  schools  has  been  met  satis- 
factorily in  Columbus  and  Bowling  Green.  In  neither  place  is  there 
demand  for  a  special  training  school  with  all  the  limitations  of  hot  house 
ventures  not  subject  to  public  criticism  or  to  the  nps  and  downs  of 
normality.  How  Bowling  Green  met  the  problem  is  here  shown  by  the 
contract  between  the  state  normal  school  and  the  city  board  of  education. 

MEMORANDUM   OF  AGREEMENT  BETWEEN  THE  BOARD  OF  EDUCATION  OF  THE 

CITY   OF  BOWLING   GREEN    AND  THE   STATE   NORMAL   COLLEGE, 

BOWLING    GREEN,    OHIO 

1.  That  the  Board  of  Education  of  the  city  of  Bowling  Green  shall 
support  a  high  school  of  the  six-year  type  including  the  seventh. 
eight,  ninth,  tenth,  eleventh  and  twelfth  grades  that  shall  maintain 
a  liberal  course  of  study  for  pupils  who  wish  to  enter  the  profes- 
sions, and  business,  industrial,  agricultural  and  home  economics 
courses  to  meet  the  needs  of  this  environment. 

2.  That  the  Board  of  Education  shall  maintain  adequate  accommoda- 
tions of  the  most  approved  type  for  ail  children  of  grades  one  to 
six  except  those  enrolled  in  the  Demonstration  School  situated  on 
the  campus  of  the  Bowling  Green  State  Normal  College. 

3.  That  the  Normal  College  shall  for  the  school  year  of  1918-19  main- 
tain a  school  of  grades  one  to  six  of  the  most  approved  efficiency 
and  at  any  time  that  shall  be  mutually  agreed  upon  add  a  class  or 
classes  not  beyond  junior  high  school  grade  and  that  the  Board  of 
Education  shall  set  off  districts  which  will  afford  at  all  times  a 


446  REPORT   OF   JOINT   LEGISLATIVE   COMMITTEE 

sufficient  number  of  pupils  properly  distributed  in  respect  to  classi- 
fication to  constitute  classes  of  standard  size. 

4.  That  the  Board  of  Education  shall  pay  all  regular  classroom  teach- 
ers employed  in  the  said  Demonstration  School  maintained  by  the 
Normal  College  to  the  extent  of  the  salary  schedule  in  force  in 
other  schools  of  like  grade  in  the  city,  payments  to  said  teachers  to 
be  made  monthly  during  the  school  year  by  the  Board  of  Education. 

5 .  That  a  Superintendent  of  Public  Schools  shall  be  employed  on  the 
recommendation  of  the  President  of  the  Normal  College  by  the 
Board  of  Education.  The  Board  of  Education  shall  pay  one-half 
of  the  salary  of  the  Superintendent  and  the  Normal  College  one- 
half,  and  each  shall  be  entitled  to  the  one-half  of  his  services. 

6.  That  the  Normal  College  shall  pay  forty  per  cent  of  the  salary  of 
a  sufficient  number,  not  to  exceed  five  for  the  school  year  of  1918- 
19,  of  high  school  teachers,  and  the  Board  of  Education  shall  pay 
sixty  per  cent,  payments  to  said  high  school  teachers  by  the  Normal 
College  to  be  made  monthly  during  the  school  year.  These  teachers 
will  serve  as  heads  of  departments  in  the  high  school  and  as. critic 
teachers  for  the  Normal  College.  The  superintendent  of  schools 
shall  supervise  the  practice  teaching  done  by  the  Normal  College 
in  the  high  school.  When  in  the  judgment  of  the  President  of  the 
Normal  College  there  should  be  a  special  supervisor  of  practice 
teaching  in  the  high  school,  the  salary  of  such  supervisor  shall  be 
paid  'by  the  Normal  College. 

7.  That  the  Board  of  Education  grants  to  the  Normal  College  the 
privilege  of  doing  practice  teaching  and  observation  in  the  ele- 
mentary schools  and  high  school  in  such  amounts  and  under  such 
plan  as  will  safeguard  the  welfare  of  the  pupils.  Such  elementary 
teachers  as  are  employed  part  time  in  practice  teaching,  and  any 
high  school  teachers  supervising  practice  teaching  and  not  being 
paid  in  part  by  the  Normal  College  shall  be  paid  the  regular  salary 
schedule  by  the  Board  of  Education  and  an  additional  sum  by  the 
Normal  College  based  upon  the  hours  of  credit  earned  by  student- 
teachers  of  the  Normal  College. 

8.  That  the  Normal  College  agrees  to  provide  a  supervisor  of  practice 
teaching  in  the  elementary  schools  who  shall  be  vested  with  full 
supervisory  authority  over  such  schools. 

It  is  understood  and  agreed  that  this  contract  shall  cover  a  period 
of  one  year  from  this  date  and  that  it  is  to  be  continued  from  year 
to  year  thereafter  so  long  as  the  parties  hereto  are  mutually  agreed 
and  satisfied  therewith. 


ON    ADMINISTRATIVE   REORGANIZATION  447 


NORMAL   COLLEGE  OR  NOR?vL\L  SCHOOL? 

No  normal  college  is  recognized  in  the  laws  of  Ohio  except  the  Ohio 
state  university's  college  of  education. 

All  the  other  training  schools  for  teachers  which  the  state  supports 
are  known  in  the  law  as  normal  schools.  Yet  not  one  of  them  speaks 
of  itself  as  a  normal  school.  The  two  normal  departments  at  Miami 
and  Ohio  universities  shine  in  the  effulgence  of  the  main  university  or 
college  of  education.  Students  coming  from  those  institutions  say  they 
have  attended  Miami  and  Ohio  university.  If  pressed  for  details  they 
say  they  graduated  from  the  college  of  education  at  Miami  or  the  state 
normal  college  of  Ohio  university. 

The  two  separate  normal  schools  at  Bowling  Green  and  Kent  call 
themselves  colleges.  Their  letter  heads  read  colleges.  Whether  taking 
the  two-year  or  four-year  courses  or  whether  dropping  out  at  the  end  of 
the  first  year,  ex-students  are  beginning  to  speak  of  themselves  as  from 
Bowling  Green  normal  college  or  Kent  normal  college.  Extension  stud- 
ents take  work  given  by  Bowling  Green  and  Kent  normal  colleges. 

Against  this  appropriation  of  a  name  not  specified  in  the  law,  this 
looking  to  a  name  for  prestige,  some  protest  has  been  sent  to  your  com- 
mittee. Expediency  and  not  technicality  should  decide  the  question.  The 
work  done  at  Bowling  Green  and  Kent  is  all,  in  law,  of  college  grade.  It 
is  reason  enough,  however,  for  keeping  and  legalizing  the  word  college 
that  it  attracts  and  satisfies  while  the  term  school  mortifies  and  detracts. 

It  is  recommended  that  in  a  revised  school  code  the  name  Normal 
College  be  adopted. 


ADVERTISING  THE  REWARDS  OF  TEACHING 

In  spite  of  the  fact  that  Ohio  has  had  a  serious  shortage  of  teachers 
that  lequired  the  closing  of  schools  and  the  lowering  of  preparation 
standards,  and  faces  still  more  serious  shortages  in  the  future,  the  eflforts 
made  to  enlist  recruits  have  been  sporadic  and  less  skillful  than  would  be 
employed  by  any  private  enterprise  in  similar  straits. 

Bowling  Green  and  Kent  normal  schools  are  running  at  one-fifth 
their  capacity.  Ohio  state  university  will  have  fewer  teacher  graduates 
in  June,  1920,  than  in  1917.  This  year's  register  in  the  college  of  educa- 
tion is  10%  less  than  it  was  in  1916  and  25%  less  than  in  1917.  Of  30,000 
students  receiving  free  tuition  at  the  expense  of  the  state  at  O.  S.  U. 
the  last  ten  years,  but  683  have  been  turned  out  prepared  to  teach. 
Whereas  the  university's  register  increased  by  1402  from  1916  to  1920 
or  25%,  the  college  of  education  register  dropped  from  562  to  509,  or 


44^  REPORT   OF   JOINT    LEGISLATIVE  COMMITTEE 

iO%,  —  in  spite  of  rapidly  increasing  salaries  for  high  school  teachers 
and  school  superintendents. 

Teachers'  Week,  February  15-22,  1920,  showed  that  it  is  possible 
to  arouse  the  general  public  to  interest  in  the  need  for  teachers  and  in  the 
opportunities  afforded  to  young  people  by  teaching.  Hundreds  of  meet- 
ings were  held,  newspapers  printed  editorials,  churches  gave  place  to 
the  appeal,  women's  clubs  and  men's  clubs  listened  to  warnings  and  calls 
for  action. 

From  the  standpoint  of  lessons  for  the  future  the  significant  facts 
about  Teachers'  Week  include  these : 

I  —  It  was  made  necessary  by  want  of  previous  educational  work 
calfed  advertising  by  the  state  department  of  public  instruction, 
the  normal  colleges  and  the  Ohio  state  university. 

y  —  Lay  audiences  were  quickly  and  deeply  interested  and  promptly 
convinced  and  enlisted. 

3  —  Editors  acted  promptly  and  convincingly,  as  did  cartoonists. 

4  —  Young  people  in  schools  welcomed  the  information  about  the 

attractions,  opportunities  for  advancement  and  durable  satis; 
factions  of  successful  teaching,  and  in  conversations  frankly 
admitted  that  earlier  interest  in  teaching  had  been  chilled  and 
diverted  by  disparagements  at  school,  in  the  press,  and  "in  the 
air." 

5  —  Faculties  and  faculty  wives  welcomed  an  opportunity  to  sub- 

stitute exaltation  for  disparagement  of  the  teaching  profession 
and  to  work  for  salary  recognition  through  public  recognition 
of  the  necessity  and  idealism  of  teaching  as  patriotic  service. 

6  —  Educational  trustees   seemed  glad   to  be   reminded  that   their 

trusteeship  includes  not  only  buildings,  expenses  and  policies, 
but  also  and  particularly  the  responsibility  for  anticipating  fu- 
ture needs  and  policies  and  for  leading  parents  and  taxpayers 
to  see  school  facts  and  to  provide  adequately  for  school  needs. 

7  —  The  legislature  recognized  the  emergency  under  the  leadership 

of  your  committee  and  sought  the  governor's  help,  and  the 
governor  by  asking  the  people  of  the  state  to  think  about,  con- 
sider and  discuss  the  scarcity  of  teachers,  best  methods  of  in- 
creasing the  supply,  and  the  importance  of  enlisting  the  ablest, 
strongest  and  very  elect  of  Ohio's  young  people  as  teachers, 
showed  that  public  officers  are  quick  to  use  the  truth  about 
school  needs. 

That  these  facts  were  not  understood  as  clearly  before  Teachers' 
Week  as  they  were  afterwards  is  less  important  than  that  they  are  ap- 
parent today.  It  will  be  easy  to  increase  the  number  who  appreciate 
them.  Among  the  steps  that  should  be  taken  to  keep  such  facts  before  the 
public  are  these : 


ON     ADM  I  NISTKAIIX  1-.    KRORGANIZATJON  449 

I — The  state  department  of  public  instruction,  Ohio  state 
■  university's  college  of  education,  the  four  normal  col- 
leges, the  normal  department  of  Wilberforce  and  county 
superintendents  responsi1)le'  for  the  35  county  normal 
schools  should  all  begin  and  continue  a  campaign  of  ad- 
vertising the  state's  need  for  teachers  and  the  attractions 
and  rewards   of   successful  teaching. 

2  —  It  Avill  help  if  in  addition  to  advertising  the  advantaijjes  r)f 

teachins^-  as  a  career,  tliese  institutions  advertise  both  the 
opportunities  for  advancement  into  other  careers  that  are 
offered  by  teaching  and  also  the  self- training,  self-discover- 
ing and  disclosure  to  others  which  successful  teaching 
gives. 

3  — This  advertising  should  be  by  the  most  successful  methods 

of  salesmanship  that  have  been  worked  out  by  specialists  in 
informing  the  public  and  appealing  to  its  imagination. 
4^  In    choosing    jnethods    of    ])ublicity    and    advertisement    the 
country's  best  practices  among  those  who  recruit  teachers 
in  every  part  of  the  country  should  be  studied. 

5  —  More    than    one    method    should    be    used;     for    example. 

printer's  ink  and  personal  letters  should  be  supplemented  by 
talks  at  school  assemblies,  talks  to  citizens  and  personal  con- 
versations with  eligible  young  people  of  highest  ability. 

6  —  Methods  should  be  changed  from  time  to  time. 

7  —  The   salesmanship  or  advertising   quality   of  bulletins,   cat- 

alogues and  annual  reports  should  l)e  fitted  to  this  task  of 
publicity  even  if  traditions  of  official  bulletining  and  re- 
porting must  be  forsaken,  to  the  end  that  every  young 
person  who  reads  about  teacher  training  schools  will  feel  not 
only  the  exalted  character  of  teaching  but  its  good  times  and 
cumulative  advantage?. 

Of  these  steps  not  the  least  important  is  the  last.  Catalogues  at  their 
best  are  great  educators ;  at  their  worst  great  mis-educators.  Practically 
every  student  in  a  high  school  looks  over  one  or  more  college  catalogues 
before  leaving  high  school,  and  those  who  go  to  college  are  apt  to  look 
over  many  catalogues  each  year  while  at  college  besides  their  own  college 
catalogue,  which  during  seasons  is  in  almost  constant  use.  In  another 
section  of  this  report  suggestions  are  made  with  respect  to  catalogue 
making  in  general.  All  of  the  suggestions  apply  with  added  force  to 
cataloguing  for  teacher  training  schools  because  of  the  urgent  need  for 
winning  recruits  in  these  schools. 

How  current  catalogues  of  Ohio  state  teacher  training  schools  ap- 
peal to  young  people  who  are  considering  alternative  next  steps  is  in- 


450  KKl'ORT    OF    JOINT    Llic;!  SI.ATI  VE    COMMITTEE 

dicated  by  the  following  report  by  a  college  graduate  teaching  her  first 
year  who  took  most  of  her  work  at  one  of  the  Ohio  schools  concerned. 
The  report  is  in  answer  to  our  question :  What  inducement  to  teach  is 
given  in  the  catalogues  of  Ohio's  state  teacher  training  schools? 

"Letters  were  written  to  four  normal  schools  asking  for  information 
about  opportunities  in  teaching.  At  the  end  of  two  weeks  no  reply  has 
been  received  from  two  of  them.  One  president  sent  a  short  letter  stating 
that  at  this  time  there  are  no  catalogues  or  bulletins  of  information  avail- 
able, but  when  ready  new  issues  will  be  sent.  For  the  fourth  a  mimeo- 
graphed letter  came  from  the  dean,  my  name  inserted  unevenly,  the  dean's 
signature  mimeographed.  The  letter  was  not  personal  in  the  slightest 
degree.  It  simply  outlines  in  general  what  the  school  has  to  offer.  It 
states  at  the  end  that  a  picture  bulletin  will  be  sent  if  the  enclosed  card  is 
signed  to  indicate  interest. 

''Five  catalogues  describing  training  courses  for  teachers  were  ex- 
amined. Not  one  attempted  to  set  forth  the  advantages  of  teaching  as  a 
profession  in  itself  or  as  a  possible  training  for  something  else;  the 
descriptions  of  courses  are  dry  and  uninspiring;  social  activities  are  not 
mentioned ;  no  account  of  athletic  events  is  given ;  no  illustrations  de- 
picting college  and  dormitory  life  are  given,  the  pleasures  of  such  being 
unnoted. 

"I  cannot  imagine  anyone  being  enthusiastic  about  going  to  any  one 
of  these  schools  after  reading  the  catalogue.  Neither  can  I  conceive 
•of  a  young  person  wishing  to  be  a  teacher  after  reading  one  of  the  cata- 
logues if  he  was  undecided  before  doing  so.  The  'all  work  and  no  play' 
attitude  reminds  him  of  his  most  disliked  teachers.  He  justly  feels  that 
he  wants  to  go  away  to  school  for  study,  to  be  with  young  people,  have 
a  good  time,  enjoy  social  functions,  athletics  and  the  like.  The  catalogues 
say  nothing  about  these  things  here  —  all  he  can  see  ahead  of  him,  if 
he  attends,  is  grilling  work. 

"Perhaps  those  who  advise  him  against  teaching  are  right  after  all. 
At  any  rate  he  gets  nothing  from  the  catalogue  with  which  to  combat 
their  arguments.  No  list  of  advantages  is  given  to  offset  their  list  of 
disadvantages  or  to  disprove  them  Avith  facts." 

One  or  two  exceptions  to  the  foregoing  comment  by  a  recent  student 
who  herself  enjoys  teaching  and  wishes  others  to  enjoy  teaching  would 
be  necessary  if  literal  accuracy  were  sought.  One  catalogue  refers  to  an 
earlier  list  of  sororities  and  student  clubs,  but  not  in  a  way  to  help  the 
not-yet-students  picture  their  pleasures.  The  picture  books  and  summer 
annour.cements  especially  furnish  exceptions.  At  least  they  have  photo- 
graphs and  one  of  them  carries  a  page  headed  "Summer  at  the  Lakes." 

y\s  an  impressionistic  picture  of  the  five  Ohio  teacher  training  cata- 
logues, and  it  is  the  ini])ressionistic  picture  only  which  the  not-yet-recruited 
teacher  sees,  the  foregoing  description  is  true  to  life. 


ON    ADM  I  Ni  STRATI  VK    REORGANIZATION  451 


FINDING  POSITIONS  FOR  TEACHERS  AND  TEACHERS  FOR 
POSITIONS 

The  following  statement  is  the  result  of  a  visit  to  the  college  of  edu- 
cation and  the  appointment  committee  of  Ohio  state  university  by  W,  C. 
Blakey,  of  the  institute  for  pubUc  service.  Mr.  Blakey  is  familiar  with 
best  practices  among  appointment  committees  or  placement  bureaus  for 
teachers.  For  two  years  he  conducted  Virginia's  employment  agency 
under  the  direction  of  the  state  superintendent  of  schools,  and  for  two  ad- 
ditional years  managed  and  directed  a  privately  owned  teachers'  employ- 
ment agency. 

Until  1919  the  employment  service  was  limited  to  teachers.  During 
that  year  the  service  was  opened  to  students  of  other  colleges.  There 
are  no  summary  records  to  show  how  many  non-teachers  sought  positions 
or  were  placed,  or  how  many  positions  sought  students  who  were  mem- 
bers of  other  colleges. 

The  employment  service  is  under  a  faculty  committee  called  appoint- 
ment committee.  A  professor  in  the  college  of  education  is  chairman. 
For  time  given  to  this  service  no  allowance  either  in  salary  or  in  reduc- 
tion of  time  for  teaching  is  made  to  this  professor.  For  the  personal  in- 
terest which  he  takes  in  individual  students,  for  his  recollection  of  their 
personality  and  capacity,  for  his  wide  acquaintance  with  the  school  men 
of  the  state  and  his  sympathetic  audience  to  trustees  and  others  wishing 
the  university's  help,  the  university  and  its  graduates  are  deeply  in  his 
debt.  The  following  constructive  suggestions  based  upon  facts  here 
stated  are  given  for  the  purpose  of  indicating  how  such  capacity  and 
willingness  to  serve  should  be  supported  by  organization  and  equipment. 

The  chairman's  office  is' located  in  Hayes  Hall,  while  the  records 
and  files  of  the  employment  bureau  are  in  the  office  of  the  dean,  Uni- 
versity Hall.  There  is  no  special  stenographic  or  clerical  service  at- 
tached to  the  employment  department.  This  work  is  taken  care  of  by  the 
clerks  in  the  dean's  office,  which  is  the  probable  reason  for  keeping  the 
records  there. 

Applicants  for  positions  register  with  the  appointment  committee 
on  a  blank  giving  training,  experience,  subjects  best  qualified  to  teach, 
subjects  able  to  teach,  subjects  studied,  and  references ;  with  the  applica- 
tion is  filed  a  photograph.  The  appointment  bureau  sends  to  each  of  the 
references  asking  for  a  confidential  report  on  the  work  of  the  applicants. 
Extracts  from  these  reports  are  typed  and  attached  to  the  application 
blank.  These  are  attached  to  a  folder,  which  shows  the  name  of  the  ap- 
plicant but  does  not  show  the  address.  Each  application  is  filed  in  a 
separate  folder  in  vertical  file.  The  folders  are  arranged  in  two  files.  — 
active  list  and  inactive  list. 

There  is  no  card  record  kept  of  the  active  applicants,  designated 
with  signal  tabs  or  other  means  to  indicate  the  nature  of  position  best 


45-  REPORT    OF    JOINT    LKIUSLATIVE    COMMITTEE 

qualified  to  fill.  Unless  a  person  had  an  intimate  knowledge  of  each 
applicant  it  would  be  necessary  to  go  through  the  entire  file  to  find. the 
applicants  qualified  to  fill  a  specific  position. 

There  is  no  card  record  of  the  names  of  the  teachers  who  have  been 
recommended  for  a  specific  position.  Carbon  copies  of  letters  recom- 
mending a  teacher  are  filed  in  the  teachers'  file. 

No  record  is  kept  of  the  calls  for  teachers.  If  there  is  no  candidate 
available,  the  writer  is  so  informed  and  his  letter  is  thrown  into  the 
trash  basket.  If  there  is  an  available  candidate,  the  recommendation  is 
made,  but  no  easily  available  record  is  kept  of  this  recommendation. 
Unless  remembering,  one  would  have  to  look  through  the  entire  files  to 
find  who  had  been  recommended  for  a  specified  position. 

A  card  file  is  kept  of  where  each  graduate  is  teaching,  but  this  file 
was  from  one  to  two  years  behind.  This  record,  however,  does  not  state 
whether  the  various  positions  were  secured  through  the  university  ap> 
pointment  bureau  or  some  other  source.  Its  value  is  only  for  the  current 
address  of  the  graduates. 

On  the  19th  of  February,  1920,  there  were  fewer  than  15  applicants 
on  the  active  list.  The  chairman  stated  that  application  blanks  would  be 
mailed  to  the  graduating  class  within  the  near  future. 

No  record  is  kept  of  the  personal  visits  in  search  for  teachers.  If 
a  superintendent  visits  the  university,  the  applicants  are  called  in  for  a 
personal  interview,  but  no  other  record  is  made  but  the  new  address  of 
the  applicant  who  is  accepted. 

There  was  no  report  for  the  year  1919  completely  indicating  the 
work  of  the  department.  It  was  stated  that  if  a  commission  had  been 
paid  by  teachers  placed  at  the  commercial  rate  of  five  per  cent  on  the 
first  year's  salary  it  would  have  amounted  to  $23,000  for  the  applicants 
placed  last  year.  It  was  also  stated  that  with  the  exception  of  about  six 
all  of  the  three  hundred  applicants  enrolled  with  the  employment  depart- 
ment had  been  placed.  No  adequate  records  were  available  to  verify  this. 
All  of  the  applicants  may  have  secured  positions,  but  there  was  nothing 
to  show  that  the  position  had  been  secured  through  the  instrumentality 
of  the  appointment  committee. 

Applicants  were  recommended  to  a  superintendent  in  some  cases 
without  the  applicant  being  notified  that  such  recommendation  had  been 
made.  The  superintendent,  being  satisfied  with  the  report  from  the  uni- 
versity, would  then  take  up  with  the  applicant  the  question  of  accepting 
the  position.  There  is  grave  danger  in  this.  If  the  applicant  happens 
to  be  enrolled  with  a  commercial  agency,  the  agency  may  also  notify  her 
of  such  vacancy.  If  she  then  files  application  as  result  of  this  notice, 
even  though  the  agency  fails  to  ni:ikf  a  direct  recommendation  and  even 
though  the  position  is  secured  by  virtue  of  the  university  recommendation, 
the  applicant  must  according  to  her  contract  pay  a  commission  to  the 
commercial  agency. 


ON    ADMINISTRATIVE    REORGANIZATION  453 

In  some  cases  superintendents  are  placed  in  touch  with  teachers  be- 
fore they  have  filed  formal  application  with  the  appointment  committee. 
This  happens  at  the  ofif  seasons,  but  records  should  be  kept  for  protection 
of  the  committee  and  for  a  complete  report. 

The  committee  does  not  handle  applicants  after  they  have  been  out 
of  the  university  over  two  years.  On  account  of  the  great  demand  for 
teachers  no  advertising  is  done  with  superintendents  and  prospective 
employees.  No  advertising  is  done  to  secure  registration  from  graduates 
of  the  university,  for  this  is  claimed  to  be  unnecessary.  No  effort  is  made 
to  place  an  exceptionally  strong  teacher  in  an  exceptionally  good  position 
unless  the  teacher  happens  to  be  enrolled  with  the  appointment  committee. 

It  is  recommended : 

1  —  That  there  be  but  one  office  appointment  work  and  that  the 

records  be  where  the  interviewing  and  placing  officer  makes 
his  office ; 

2  —  That  sufficient  clerical  help  be  provided  for  keeping  the  neces- 

sary records ; 

3  —  That  a  system  of  card  records  be  installed  for  all  applicants 

which  will  show  all  of  the  facts  about  the  applicant,  including 
the  positions  to  which  she  has  been  recommended  and  her  ex- 
perience in  positions  taken;  (faculty  members  or  others  should 
be  given  specific  facts,  not  general  impressions,  such  as  the 
University  of  Wisconsin  employment  bureau  and  several  other 
employment  bureaus  now  require ;  in  fact  it  would  help  to  have 
students  and  applicants  mark  themselves  on  a  personality  chart, 
of  which  several  are  now  available.) 

4  —  That  a  system  of  card  records  be  installed   for  all  positions 

to  be  filled,  whether -learned  of  by  personal  calls  or  by  letter,  to 
include  facts  as  to  each  person  recommended  for  the  position ; 

5  —  That  printed  blanks  be  used  to  notify  applicants  promptly  of 

every  recommendation  made  by  the  employment  service,  with 
return  card  for  the  applicant  to  indicate  promptly  whether  she 
will  accept  the  position  if  obtained ; 

6  —  That  service  be  extended  to  all  graduates  and  former  students 

of  O.  S.  U.  instead  of  discontinuing  service  after  two  years; 

7  —  That   more   detailed    information   be   recorded   respecting  the 

personality  of  the  applicant,  so  that  not  so  much  wall  depend 
upon  the  chairman's  personal  acquaintance,  or  at  least  so  that 
what  the  chairman  personally  knows  may  be  on  the  record  in 
case  he  is  absent; 

8  —  That  more  detailed  information  be  required  and  recorded  with 

respect  to  the  positions  which  are  seeking  teachers,  for  example 
such  information  as  was  listed  in  the  ten  questions  suggested 
by  the  school  revenue  inquiry  in   March,   1920;   (No  teacher 


4S4  RICl'OKT    OF    JOINT    Li:(;iSLATl\K    COMMITTKE 

should  go  blindfolded  into  a  community.  No  community  tliat 
is  backward  in  its  provision  for  teachers  should  have  the  sup- 
l)ort  of  the  state  university  in  concealing  or  condoning  tha* 
backwardness.) 
9  —  That  all  records  be  brought  and  kept  to  date,  including  sum- 
maries of  applicants  placed,  positions  filled,  applicants  not 
placed  and  positions  not  filled ; 

10  —  That  high  spot  facts  that  come  into^this  employment  bureau 

be  used  as  a  means  of  advertising  the  ability  of  the  college  of 
education  to  serve  Ohio's  schools ;  for  example,  "Superintend- 
ent Smith  calls  for  a  special  teacher  at  $125  a  month;"  "Of 
three  students  considered,  Miss  A.  P..  Jones,  '19.  was  chosen:" 

1 1  —  That  the  cost  of  service  per  applicant  placed,  per  position  filled. 

per  applicant  listed,  and  per  position  listed,  be  currently 
recorded ; 

12  —  That  a  co-operative  study  be  made  for  which  the  help  of  former 

students  and  the  advice  of  the  auditor  of  state  shall  be  sougl.t, 
to  answer  the  questions  whether  even  greater  advantages  could 
be  obtained  from  this  service,  and  the  commonly  argued  ob- 
jections could  be  avoided,  if  a  charge  were  made  sufficient  10 
maintain  the  service ; 

13  — That  instead  of  waiting  to  be  asked  by  strong  graduates  to 

recommend  them  to  a  position,  such  as  the  superintendency  at 
Akron  which  is  now  looking  for  strong  applicants,  and  instead 
of  v^aiting  for  positions  to  apply,  this  bureau  l)e  alert,  the  first 
to  know  of  a  vacancy,  and  always  knowing  about  O.  S.  U.'s 
strong  teachers ; 

14  —  That  the  bureau's  services  be  advertised  through  a   required 

annual  report  and  through  catalog  announcements  which  will 
give  specific  facts  about  its  placements  and  positions  whicli 
it  was  unable  to  fill  and  also  through  other  means  of  publicity 
such  as  bulletins,  printed  cards,  articles  in  school  journals, 
newspapers,  etc. ; 

15  —  That  in  the  work  of  the  bureau  students  from  the  college  of 

education  be  employed  on  assignment  as  part  of  their  train  ng 
for  school  management ; 

16  —  That  the  general  scope  of  this  employment  service  be  extended 

so  that  with  the  help  of  the  college  of  education  and  other 
faculties  it  will  not  only  bring  position  and  applicant  together 
but  will  in  addition  give  the  O.  S.  U.  student  skilled  diagnosis 
of  his  personality  and  training  and  help  in  improving  both  be- 
fore taking  a  position. 

This  means  the  development  of  a  vocational  guidance  clinic;  the  con- 
structive use  at  placement  time  of  the  student  records  and  psychological 


ON    ADMINISTRATIVE    REORGANIZATION  455 

tests  and  scholarship;  the  introduction  of  vocational  tests  such  as  were 
found  practicable  in  the  army,  aviation,  and  navy  service;  the  building 
up  of  character  tests  during  a  college  course,  and  the  fijial  assaying  in  this 
placement  service. 


COLLEGE  OF  EDUCATION 

The  last  word  in  Ohio  teacher  training  is  spoken  and  will  be  con- 
tinued to  be  spoken  from  the  Ohio  slate  university's  college  of  education. 
Because  this  has  graduate  students  and  ofifers  the  degree,  Doctor  of 
Philosophy,  because  this  is  the  only  institution  which  the  state  recognizes  . 
as  of  university  grade,  because  it  is  associated  with  training  for  high 
school  and  college  instructors,  this  central  school  at  Columbus  will  set 
the  high  water  mark  for  state  work  in  Ohio. 

That  mark  should  be  very  high,  as  high  as  -an  be  found  elsewhere 
in  the  country.  It  may  merely  seem  high  because  not  so  low  as  that  of 
county  normal  schools  or  the  four  other  state  normal  colleges.  What  it  is 
will  depend  upon  steps  taken  in  the  spring  of  1920  to  fill  the  deanship  in 
the  college  of  education  which  will  become  vacant  July  i,  when  the 
resignation  of  Dean  George  W.  Knight  takes  efifect. 

It  is  suggested  that  your  committee  make  a  special  appeal  to  the 
trustees  and  faculties  of  the  university  to  redefine,  with  a  view  to  Ohio's 
needs  in  1920  and  thereafter  (1)  the  job  and  opportunity  assigned  to  the 
college  of  education  and  (2)  the  experience  and  personality  qualifications 
which  a  new  dean  should  possess.  As  stated  in  another,  section  of  this 
report,  this  redefinition  can  not  fail  to  call  for  standards  higher  and  serv- 
ices more  extensive  than  any  that  have  yet  been  attained  in  the  practical 
training  of  teachers  and  supervisors,  if  the  Ohio  state  university  will 
ask  the  public  school  men  and  women  of  Ohio  what  kind  of  leadership 
they  would  like  from  the  college  of  education. 

There  is  still  time  to  arouse  enthusiasm  for  this  central  leadership 
which  will  bring  to  Columbus  several  hundred  ambitious  teachers  and 
supervisors  who  now  feel  tliat  they  must  go  to  Chicago,  Madison,  Ann 
Arbor  or  New  York  City.  There  are  personal  reasons  besides  pride  in 
their  state  which  would  make  them  prefer  stimulating  practical  help  from 
th<?ir  own  state  university;  they  will  save  transportation;  they  will  live 
more  cheaply ;  they  will  make  more  friends  whom  they  will  meet  next 
year;  they  can  see  their  way  more  readily  to  finishing  their  course. 

A  dean  should  be  selected  who  will  see  the  truth  that  Ohio  is  strong 
enough  to  do  in  its  college  of  education  what  its  own  schools  particularlv 
need  no  matter  whether  other  schools  outside  of  Ohio  are  doing  those 
things  or  not.  For  example,  no  college  of  education  has  yet  offered  sum- 
mer opportunities  for  men  who  have  already  obtained  their  Doctor  of 
Pliilosophy  degree  or  top  rank  in  their  profession  without  a  degree,  to 


45''>  Ki:i'(iKT    OF    JOINT    LECilSLATlVE    COMMITTEE 

confer  with  their  colleagues  or  with  men  with  special  experience  regard- 
ing such  matters  as  the  making  of  annual  reports,  conducting  campaigns 
for  greater  community  support,  recruiting  teachers,  revising  a  course  of 
study,  more  learning  by  doing,  need  for  university  help  and  supervision 
for  studies  and  experiments  of  school  men  in  their  own  schools,  etc. 
If  the  Ohio  state  university  does  this  for  her  own  state's  sake  she  needs 
no  sanction  from  other  states,  but,  in  fact,  will  find  her  example  emulated 
throughout  the  nation. 

A^ain  there  are  many  live  educators  who  do  not  feel  equal  to  long 
hours  of  lectures  or  to  devitalizing  hours  in  a  library  reading  what  other 
people  have  said  about  their  work,  but  who  would  like  to  meet  other  strong 
men  and  women  and  confer  as  equals  regarding  next  steps.  Such  a 
course  would  have  no  fixed  recitations,  no  lectures,  no  assigned  readings, 
no  required  work  of  any  kind  except  perhaps  participation  in  games  and 
physical  training,  but  would  depend  for  its  success  upon  round-table 
conferences  and  individual  conferences.  There  is  similar  need  for  ex- 
tension and  in  absentia  work  by  this  college. 

The  only  reason  such  courses  have  not  been  widely  developed  is 
that  no  method  has  yet  been  worked  out  for  giving  academic  credit  to- 
ward the  degrees  of  Master  of  Arts  or  Doctor  of  Philosophy.  Ohio 
needs  such  conferences  and  such  opportunities  for  growth  more  than  it 
needs  more  academic  credit  or  academic  degrees.  It  is  entirely  practical, 
however,  to  work  out  tests  of  growths  that  will  justify  giving  the  academic 
recognition  which  is  called  credit.  It  is  not  too  late  for  Ohio  to  organize 
under  the  leadership  of  the  Ohio  state  university  such  courses  in  connec- 
tion with  its  five  normal  schools  and  the  summer  annual  meeting  of  the 
Ohio  State  Teachers'  Association  at  Cedar  Point.  The  fact  that  in  doing 
this  Ohio  would  be  a  pioneer  and  not  a  mere  follower  of  tradition  is  no 
argument  against  it. 

Xow  is  the  time  also  for  a  still  further  important  step  by  the  trustees 
and  the  deans  —  a  step  in  which  fortunately  the  faculties  of  Miami  and 
Ohio  universities  can  easily  join,  namely,  a  study  by  all  faculties  and 
especially  l)y  the  deans,  of  the  aims,  methods  and  results  of  the  college 
of  education.  It  is  no  secret  that  there  has  been  a  lack  of  enthusiastic 
co-operation,  even  if  not  actual  friction,  between  the  college  of  education 
and  various  other  colleges.  In  the  college  of  arts,  for  example,  there  is 
a  widespread  belief  that  the  so-called  professional  courses  in  the  college 
of  education  are  frightening  strong  men  and  women  away  from  teaching 
and  are  making  those  who  take  such  courses  less  valuable  as  teachers 
than  they  would  be  without  them.  Of  course,  the  college  of  education 
does  not  believe  this  or  it  would  not  be  requiring  such  courses.  It  is 
equally  obvious  that  tliis  is  a  ([ucstion  of  fact  that  can  not  be  settled 
by  two  parties  wi.shing  the  truth.  New  is  the  time  to  settle  it  on  the  basis 
of  co-operative  investigation. 


ON    ADMINISTRATIVI-:    REORGANIZATION  457 

Again  in  tiie  college  of  arts  are  many  men  whose  opinion  carries 
weight,  who  believe  that  a  person  who  is  full  of  a  subject  can  teach  it 
without  knowing  the  history  of  education  and  educational  psychology. 
In  the  college  of  education  and  in  scores  of  other  similar  colleges  are 
men  who  have  given  a  life  time  to  studying  this  question  who  believe 
they  have  proved  that  the  student  who  knows  and  loves  chemistry, 
geology,  economics  or  history  can  be  made  even  more  enthusiastic  about 
his  subject,  and  far  more  capable  of  helping  young  people  develop  in 
in  the  study  of  it,  if  he  learns  the  technique  of  teaching.  Nobody  wants 
to  believe  what  is  untrue  on  this  issue.  Nobody  wants  to  urge  what  is 
impractical.  It  may  be  that  the  right  answer  is  midway  between  the  two 
arguments.  It  may  be  that  by  slightly  changing  its  own  method  of  prac- 
tice teaching  and  its  theoretical  subjects  the  college  of  education  can 
persuade  other  colleges  by  practical  demonstrations  that  knowing  a  sub- 
ject and  knowing  how  to  interest  others  in  it  are  two  entirely  dififerent 
things.  The  large  number  of  graduates  and  undergraduates  conscripted 
without  warning  into  the  university's  teaching  force  this  year  may 
profitably  be  used  as  clinical  material.  Whatever  conflict  there  is  can  not 
possibly  outlast  a  joint  effort  to  apply  the  principles  of  scientific  analysis 
to  the  two  methods  at  work. 

Another  type  of  question  which  calls  for  similar  co-operative  study 
is  whether  a  library  school  or  a  social  service  school  when  organized, 
should  be  in  the  college  of  education  or  under  the  library  service  or  arts 
department.  Now  is  the  time  to  start  such  co-operative  study  so  that 
when  the  new  dean  takes  office  he  can  go  in  with  the  informed,  whole- 
hearted co-operation  of  the  other  colleges. 

If  a  division  of  administrative  research  and  reference  is  established, 
such  continuing  study  of  the  college  of  education,  its  methods,  its  results, 
and  its  relations  to  other  colleges  will  be  one  of  the  appropriate  uses  of 
its  opportunity.  In  making  such  studies  it  should  be  able  to  call  upon  the 
students  in  the  college  of  education  and  should  be  willing  to  use  them. 
In  fact  the  development  of  administrative  research  should  always  go 
hand  ;n  hand  with  the  use  of  students  from  different  colleges  as  a  means 
of  making  the  research  cost  as  little  as  possible  while  at  the  same  time 
giving  invaluable  field  work  that  needs  to  be  done  and  that  will  be  used 
before  their  eyes  for  benefiting  the  state. 

A  co-operative  study  of  the  college  of  education  would  give  atten- 
tion to  facts  like  the  following,  explain  them  and  suggest  constructive 
ways  of  dealing  with  them :  Of  88  Ohio  counties  23  have  no  students  this 
year  in  the  college  of  education  ;  21  had  but  one  ;  16  had  two  ;  20  had  from 
three  to  five ;  only  five  besides  Franklin  County  had  more  than  five ;  on'y 
two  besides  Franklin  County  had  ten  or  more.  Obviously  it  will  not 
suffice  to  say  that  various  counties  are  nearer  one  or  the  other  normal 
school  or  private  college. 


45<^  Ul'.POKT    or    JOl.VT    I.KC.ISI.ATIX'K    (( )  M  M  ITTKK 

With  respfct  to  each  county  the  qtiestion  should  be  answered; 
"What    steps   have   l)ecn   taken    to   accpiaint    hi,i,'h    school    students,   their 

!ie  s,  and  men  and  women  already  teachinj^  and  supcTN'i ;  nj;  ■•..•.  '■'    1 
facilities  ofi'ered  by  the  Ohio  state  university  college  of  education?" 

In  this  same  way  the  service  spot  map  showing  this  year's  registra- 
tion and  the  graduates  for  the  last  four  years  would  profitably  be  taken 
up  county  for  county  with  the  view  to  correspondence  and  visits  that 
should  be  started  with  school  principals,  teachers  and  children  of  these 
counties. 

The  employment  service  offers  another  held  for  fruitful  study.  In 
a  separate  section  is  given  the  report  by  W'.  C.  IMakey,  of  the  Institute 
for  Public  Service,  who  knows  teachers'  employment  service  from  per- 
sonal experience.  Though  brief  and  made  after  one  short  visit  this 
report  shows  that  a  co-operative  study  of  the  employing  methods  directed 
by  the  college  of  education  would  prove  profitable. 

The  registration  during  the  summer  session  of  19 18  would  well  be 
compared  with  the  lists  of  county,  city  and  district  superintendents  and 
supervisors  in  Ohio  schools  —  and  with  the  catalogue  lists  from  Teachers' 
College,  Columbia,  Universities  of  Chicago,  Michigan,  W' isconsin,  etc.  — 
during  the  last  few  stmimers  to  learn  what  they  sought  outside  the  state 
which  was  not  being  furnished  by  the  Ohio  state  university's  summer 
school. 

Joint  visits  to  instructors  of  professional  subjects  and  of  so-called 
academic  subjects  like  history,  chemistry,  English  and  other  languages 
would  profitably  be  made  by  representatives  of  the  college  of  education 
and  of  the  arts  college. 

For  your  committee  visits  were  made  to  two  classes  in  educational 
p.sychology  in  midwinter,  1919.  The  fact  that  both  were  being  taught 
by  women  was  not  known  to  the  visitor.  In  the  first  class  the  instructor 
was  lecturing  on  aims  in  selecting  subjects  to  be  taught.  Several  relevant 
(|uestions  were  asked  by  class  members;  Why  should  we  not  teach  a 
subject  for  its  disci|)linary  value?  What  aim  would  a  inipil  have  in 
taking  a  subject  already  re([uired  by  the  course  of  study?  Hie  teacher 
answered  these  questions  instead  of  having  class  members  answer  them, 
a  method  that  schools  of  education  tell  students  should  not  be  employed 
in  teaching.  V^ery  few  ([uestions  were  asked  b\-  the  teacher.  There  was 
almost  no  discussion,  another  ear-mark  of  defective  teaching. 

The  second  class  began  with  the  writing  of  the  ne.xt  lesson's  as- 
signment on  the  blackboard : 

Fatigue  —  definition   of   terms    used    in    study    of    fatigue,   text 

305"v3'5-      Problem    of    efficiency    at    end    of    several    hours   of 

mental  work,  text  283-294,  especially  .Aral's  work. 

In  S]>ecifying  the  ])age  limit  for  gr()\\n-ui>  students  this  teacher  of 
teachers  violated  one  of  the  basic  principles  of  teaching  which  colleges 
of  education  are  trving  to  enforce. 


ON    ADMINISTRATIVE    REOKCANIZATION  459 

The  subject  for  the  day  was  "Transfers  in  training,"  an  important 
question  in  all  fields  of  education,  because  our  present  course  of  study 
is  based  largely  upon  the  theory  that  facts  used  or  habits  developed  in 
the  study  of  one  subject  make  a  student  more  competent  to  deal  with 
other  subjects;  for  example,  that  training  in  Latin  grammar  improves 
English  speech  and  develops  power  of  logical  thought.  The  instructor 
urged  the_  use  of  personal  judgment  in  considering  experiments  and  ad- 
vised against  accepting  book  results.  "Use  the  data  and  form  your 
own  conclusions."  After  discussing  various  kinds  of  transfer  of  sub- 
ject matter  she  took  up  transfers  of  procedure,  e.  g.,  -reducing  proportion 
to  percentage  under  the  four  headings,  method  —  aims  —  ideals  —  atti- 
tudes. In  this  class  of  31  there  were  eight  members  who  took  some  part 
in  the  lesson  by  asking  or  answering  a  question.  The  instructor  called 
by  name  upon  those  students  who  had  shown  willingness  to  answer. 
She  did  not  extend  her  range  to  include  those  who  did  not  volunteer. 
Four  times  she  asked  the  class  if  there  were  any  questions  they  wished 
answered  or  explained  and  obtained  only  one  question,  and  that  one 
the  first  time  she  asked  —  another  violation  of  the  theory  of  instruction 
v/hich  the  college  of  education  teaches.  When  one  student  presented 
an  editorial  from  a  daily  paper  which  urged  the  teaching  of  Latin  be- 
cause of  its  value  to  students  of  French  and  Spanish  the  instructor  ex- 
plained the  application  of  this  to  the  problem  instead  of  letting  a  student 
do  it  —  another  obvious  violation  of  the  method  v/hich  professional 
courses  are  intending  to  teach  and  exemplify. 

These  two  illustrations  are  given  merely  to  emphasize  the  importance 
and  profit  of  classroom  visits  for  those  responsible  for  the  training  of 
teachers.  It  is  a  truism  in  the  educational  field  that  young  people  will 
teach  as  they  are  taught  rather  than  as  they  are  told  to  teach.  This 
makes  it  indispensable  to  intelligent  management  of  teacher  training  in- 
stitutions that  deans  and  department  heads  —  and  presidents,  too  — 
know  how  future  teachers  are  actually  being  taught,  whether  in  so-called 
professional  courses  or  in  history  and  English  courses  which  are  no  less 
professional  because  they  deal  immediately  with  subject  matter  that 
teachers  must  draw  out  and  impart. 

This  year  of  overcrowded  classes  and  teaching  by  a  large  number 
of  unprepared  graduates  and  undergraduates  was  a  year  of  unequaled 
opportunity  for  the  college  of  education  to  be  of  service  to  all  depart- 
ments. Apparently  it  never  occurred  to  any  other  department  to  ask 
help  of  the  college  of  education  in  supervising  the  teaching  by  under- 
graduates and  graduate  assistants.  In  only  a  small  percentage  of  cases 
did  it  apparently  occur  to  responsible  department  heads  to  ascertain  by 
actual  visits  where  these  young  teachers  needed  help  in  tlieir  instruction 
or  where  their  classes  needed  protection  against  curable  deficient  instruc- 
tion. 


460  Klil'OKT    OF    JOINT    LEGISLATIVE    COMMITTEE 

Of  99  full  professors  including  one  dean,  two  visited  students  teach- 
ing and  nine  supervised  faculty  members  teaching  —  three  less  than  one 
hour,  one  two  hours,  four  over  two  hours  in  the  week  recorded. 

Of  76  associates  and  assistant  professors,  six  including  one  of 
physical  education  and  one  of  military  science  supervised  other  instruc- 
tion an  hour  and  a  half;  one,  arts,  visited  student  teachers  30  minutes, 
as  did  one,  engineering;  two,  Romance,  supervised  faculty  65  and  145 
minutes,  and  one,  physical  education,  130  minutes;  and  one,  military 
science,  no  minutes. 

It  is  not  self  evident  that  these  assistants  were  teaching  badly  be- 
cause they  had  not  taught  before  or  had  not  prepared  for  teaching.  It 
may  be  that  some  of  the  very  best  teaching  in  the  university  was  by 
them.  What  the  facts  are  could  and  should  be  ascertained  by  co-opera- 
tive visiting. 

Too  serious  to  be  lightly  overlooked  by  trustees  or  deans  of  faculties 
was  the  Teachers'  Week  demonstration  and  mass  meeting  made  under 
the  auspices  of  the  college  of  education.  What  happened  is  stated  briefly 
before  the  interpretation  of  what  happened. 

It  was  long  after  the  governor  issued  his  proclamation,  January  6th. 
calling  upon  all  forces  in  the  state  to  co-operate  in  Teachers'  Week,  and 
long  after  the  state  campaign  was  under  way  and  plans  made  for  a  city 
campaign  among  civic  agencies,  school  and  the  press  before  any  step 
was  taken  at  the  Ohio  state  university.  So  far  as  faculties  or  public 
knew  no  steps  were  taken  or  were  in  contemplation  until  the  week  before 
the  Teachers'  Week  drive  opened.  Then  at  a  faculty  meeting  one  faculty 
member  rose  to  move  the  general  and  whole-hearted  participation  by  the 
faculty  and  faculty  wives.  The  proposer  of  this  motion  was  not  a  mem- 
ber of  the  college  of  education.  For  making  such  a  motion  when  "not  a 
member  of  this  college  in  whose  province  the  subject  of  Teachers'  Week 
so  peculiarly  belonged"  this  faculty  member  was  rebuked  by  the  dean  of 
the  college  of  education  and  the  faculty  told  that  this  college  had  been 
contemplating  a  faculty  demonstration.  The  up-shot  of  the  discussion 
was  that  the  faculty  voted  to  leave  with  the  college  of  education  the  plan 
for  a  Teachers'  Week.  The  meeting  adjourned  without  taking  up  th? 
several  suggestions  which  the  mover  of  the  original  motion  meant  to 
make,  namely,  convocation  of  faculty  and  faculty  wives;  convocation  of 
students,  references  in  each  instructor's  classes  to  the  opportunities  of 
teaching  from  the  standpoint  of  the  subject  being  taught;  individu'-l 
conferences  with  students  wishing  light  on  teaching  with  reference  to 
their  own  hopes,  aptitudes  and  predicaments. 

Days  passed  and  nothing  further  was  heard  by  the  faculty  until 
the  (lay  of  the  mass  meeting.  iMually  at  tlie  last  hour  it  was  annonnced 
that  tlierc  would  be  a  nia^s  nu'cting  (^f  faculty,  faculty  wives  and  stu- 
dents, o])en  to  the  ])nblic.  at  which  the  president,  a  member  of  the  Co- 
lumbus   board    of    education,    the    b'ranklin    Count v    su]KM-intendent    and 


ON  admin:sti^\tive  reorganization  461 

Governor  Cox  would  speak.  At  the  hour  for  the  meeting  there  was  but 
a  handful  of  people  in  the  chapel.  In  all  from  150  to  200  finally  came 
besides  the  chorus.  The  governor  was  unavoidably  detained,  which  fact 
disappointed  the  audience,  but  did  not  account  for  the  almost  complete 
non-attendance  of  faculty  and  faculty  wives  at  the  meeting.  While  no 
ofHcial  count  was  taken  it  is  doubtful  if  there  were  half  a  dozen  faculty 
members  present  or  more  than  that  number  of  faculty  wives.  This  is  a 
score  of  about  one  per  cent. 

After  conceding  full  force  to  the  various  explanations  —  influenza, 
printing  troubles,  conflicting  engagements  —  the  fact  remains  that  this 
show  of  interest  in  Teachers'  Week  by  the  Ohio  state  university  raises 
several  questions  with  respect  to  the  stewardship  of  trustees,  of  executive 
officers,  of  faculties  in  general  and  of  the  college  of  education  in  particular 
that  call  for  serious  co-operative  study. 

The  publicity  methods  used  by  the  college  of  education  have  been 
referred  to  in  the  section  on  advertising  the  rewards  of  teaching.  One 
of  the  great  opportunities  of  the  new  dean  will  be  to  put  this  publicity  on 
a  new  basis  which  will  call  for  more  information  with  respect  to  young 
people  available  for  registration ;  those  actually  registering ;  their  progress 
while  in  school ;  opportunities  for  wholesome  good  times ;  their  successes 
in  practice  teaching;  conditions  of  employment  open  to  these  students, 
especially  those  positions  seeking  the  student;  the  character  of  opportu- 
nities taken  by  students;  evidences  of  their  growth  after  they  begin  to 
teach;  reasons  why  they  withdraw  from  teaching;  Ohio's  own  main  needs 
in  the  teaching  field. 

The  begining  of  an  additional  and  improved  publicity  might  profit- 
ably start  with  a  high  spot  study  of  the  college  of  education  and  its 
offerings. 

One  high  spot  is  the  relation  which  the  Ohio  state  university  has 
enjoyed  for  several  years  with  the  high  schools,  the  schools  for  the  deaf 
and  blind  and  the  hospitals  for  the  insane  and  feeble-minded  in  Columbus. 
Instead  of  being  limited  to  a  hot-house  school  of  selected  children  work- 
ing under  artificial  conditions,  the  Ohio  state  university  students  in  the 
college  of  education  have  the  privilege  of  teaching  in  the  public  schools 
at  Columbus  under  trained  supervision  of  both  college  supervisors  and 
high  school  supervisors.  So  sound  is  the  principle  underlying  this  rela- 
tion that  teacher  training  leaders  in  the  country  are  with  few  exceptions 
seeking  to  establish  such  relations  with  their  home  town  public  schools. 

A  second  high  spot  is  the  practical  training  in  journalism.  The 
running  of  the  Lantern  by  students  and  preparing  one  daily  issue  of  a 
Columbus  paper  each  year  ofYer  many  suggestions  to  prospective  teachers. 
This  is  a  great  asset  to  the  university  and  to  Ohio  journalism.  It  should 
be  known  for  its  own  sake  and  for  the  bearing  it  has  upon  the  general 
adoption  by  the  university  of  the  method,  namely,   learning  by   doing 


4^2  KKPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

what  needs  lo  be  done  and  what  has  dehnite  punctuaHty  and  acceptability 
tests. 

A  third  high  spot  is  the  fact  that  tlie  heads  of  tii€  schools  for  the 
blind  and  deaf  and  the  hospitals  for  the  feeble-minded  and  the  insane 
are  glad  to  have  their  institutions  visited,  their  methods  studied,  and  their 
pupils  and  inmates  given  intelligent  tests,  etc.,  by  classes  from  the  college 
of  education.  This  nearness  to  sociological  laboratories  is  a  very  great 
asset  which  justifies  not  only  special  mention  but  efficient  advertising. 

A  fourth  high  spot,  the  bureau  of  juvenile  research,  has  its  head- 
quarters and  observation  home  in  Columbus.  Its  head,  who  is  a  cele- 
brated teacher  in  this  field,  is  available  to  explain  and  demonstrate  various 
aspects  of  juvenile  research  to  the  0(hio  state  university  students  and  is 
conipetent  and  glad  to  guide  them,  in  field  studies,  service  and  research. 

A  fifth  high  spot  is  the  access  —  foi-  observation  and  for  special 
study  as  well  as  for  practice  —  to  the  city  school  system  of  Columbus 
which  exemplifies  practically  everything  that  is  best  and  worst  in  school 
facilities  and  school  practice.  The  superintendent  is  a  far-seeing  educa- 
tor with  a  record  for  constructive  work  such  as  few  others  in  the  country 
enjoy.  Progressive  and  able  principals  and  teachers,  parent-teachers'  as- 
sociations and  an  educational  council  are  furnishing  material  for  studies 
and  opportunities  for  field  training  in  community  leadership.  No  high 
school  teacher  or  graduate  student  should  be  certificated  by  the  college 
of  education  who  has  not  personally  visited  and  participated  in  elementary 
school  work.  Furthermore,  experience  proves  that  observing  buildings 
that  lack  proper  facilities  and  classes  which  lack  inspired  and  modern 
teaching  is  a  helpful  background  for  high  spot  building  and  teaching. 

A  sixth  high  spot  is  the  co-operative  attitude  of  the  county  school 
.\vstem. 

A  seventh  and  most  important  high  spot  is  the  nearness  to  the  state 
department  of  public  instruction  which  in  the  next  few  years  will  be 
taking  many  forward  steps  in  education  and  services  that  ofifer  unsur- 
passed opportunity  for  field  training  in  research  and  service,  in  educa- 
tional publicity  and  in  field  examinations. 

An  eighth  and  instructive  high  spot  is  the  presence  in  Columbus 
every  other  year  of  the  legislature,  the  presence  all  the  time  of  the  central 
state  offices  and  the  constant  discussion  in  the  local  press  of  state  prob- 
lems, many  of  which  have  a  distinct  bearing  upon  education. 

W'ith  these  and  many  more  high  s]iots,  the  Ohio  state  university's 
college  of  education  can  fairly  seek  to  hold  in  Ohio  several  hundred  of  its 
able  educators  who  now  take  their  knowledge  of  Ohio's  needs  to  other 
states  for  their  advance  work. 

From  the  teaching  force  of  Colunilms  and  ne.irbv  schools  there  should 
be  more  teachers  wishing  courses  in  education  and  other  subjects  than 
the  total  present  registration  in  the  college  of  education.  The  four  o'clock 
courses  now  offered  can  be  readied  by  only  a   feu    eUnienlary  teachers 


ON    ADMINISTRATIVK    Rl'.ORC.AN  I/.ATION  463 

and  by  them  often  at  serious  sacrifice  of  their  school  duties.  Since  the 
state  law  and  pending  proposals  before  various  city  boards  of  education 
put  a  high  premium  on  college  courses,  it  is  suggested  that  the  college  of 
education  would  profitably  offer  its  services  on  the  campus  or  at  centers 
convenient  to  groups  of  teachers,  principals  and  other  supervisors,  as 
follows   so   far  as  demand  may  justify: 

1  — Afternoon  courses,  later  than  4  P.  ]\i. 

2  —  Evening  courses. 

3  —  Saturday  forenoon  courses. 

4  —  Special  direction  of  experiments  or  studies  by  individual  teach- 

ers or  supervisors  as  to  subject  matter,  method  of  instruction, 
or  classes  of  pupils. 


SHAI.L  THE  TEACHING  PROEESSION  BE  SUBSIDIZED? 

No  fee  is  now  charged  for  attendance  at  Bowling  Green  and  Kent 
normal  colleges.  A  fee  of  $15  a  term  or  $30  for  the  regular  year  is 
charged  at  Miami  and  Ohio  normal  colleges  at  Oxford  and  Athens. 

Yet  the  register  at  the  two  schools  charging  a  fee  is  more  than 
double  that  at  the  two  schools  which  charge  no  fee. 

In  this  comparison  the  increased  register  is  not  credited  to  the  fees; 
the  comparison  is  stated  to  indicate  that  in  spite  of  the  absence  of  fees. 
Bowling  Green  and  Kent  have  not  made  sufficient  appeal  to  the  seven 
thousand  and  twelve  thousand  teachers  of  their  districts. 

The  experience  of  Wilberforce,  where  free  rent  is  given  to  Ohio 
residents,  and  where  only  194  of  575  registrants  are  Ohio  residents,  and 
where  only  37  Ohio  students  are  registered  for  normal  work,  would 
indicate  that  so  small  a  subsidy  has  little  efifect. 

A  more  substantial  subsidy  is  proposed  by  President  J.  E.  McGilvrey 
of  Kent  normal  college,  namely  $50  a  month  to  students  while  preparing 
for  teaching.  •  President  McGilvrey  cites  Akron  City,  which  is  paying  this 
amount  and  which  in  spite  .of  competition  from  the  great  industries  of 
Akron,  and  in  spite  of  the  drift  away  from  teaching  which  is  almost 
universal  elsewhere,  is  able  to  attract  the  best  abilities  from  Akron  high 
schools  into  teaching.  It  is  claimed  that  since  this  method  was  adopted 
the  Akrou  normal  school  has  been  able  to  take  the  pick  instead  of  the 
leavings.  Distinguished  out-of-Ohio  normal  school  men  are  quoted  as 
believing  that  teachers  can  never  be  recruited  without  subsidy. 

At  the  Cleveland  meeting  of  the  N.  E.  A.  in  February,  1920,  an  ad- 
dress delivered  by  President  James  C.  Riggs,  of  Oswego  Normal,  N.  Y., 
urged  state  scholarships  for  teachers  in  training  for  the  following 
reasons : 


4'''4  RKl'OkT    OF    jorXT    r-KC.ISLATlVK    COMMITTEE 

1  —  Increased  pay  for  public  school  teachers  has  not  increased  the 

student  body  of  the  normal  school. 

2  —  The   promise   of   college   credit   for  normal   school   work   has 

failed  to  bring  any  appreciable  number. 

3  —  The   attractions   of   an   enriched  curriculum   and   superior  in- 

structors in  the  elementary  courses  have  not  been  sufificient  to 
ofifset  the  call  of  a  good  position  in  business,  a  living  and  a 
saving  wage  "beginning  now." 

4  —  To  an  eighteen-year  old  student  just  out  of  high  school  the 

delay  of  two  years  or  more  before  he  can  become  an  earner  is 
a  long  period  to  wait  and  in  many  cases  is  prohibitive,  for  few 
elementary  teachers  come  from  families  of  even  moderate  in- 
come. 

5  —  Pfi^'^fe  competitors  often  find  it  npo^c«;prv  to  pay  for  lesmer? 

in  training;  hospitals,  manufacturing  establishments,  telephone 
companies,  the  army  and  navy,  the  national  guard. 

6  —  When  teachers  were  needed  for  the  Philippines.  Porto  Rico, 

and  the  Canal  Zone,  the  federal  government  did  not  delay  in 
furnishing  the  necessary  funds  which  would  attract  to  those 
services. 

7  —  New  York  state  pays  three  thousand  students  $ioo  a  year  dur- 

ing a  four  year  course,  and  by  that  means  has  obtained  students 
of  the  best  scholarship. 

8  —  Sixty-six  hundred  foreign  students  from  eighty  different  coun- 

tries are  in  American  colleges  most  of  them  at  the  expense 
of  their  home  governments. 
9 —  Secondary  schools  advise,  urge,  and  instruct  their  best  students 
to  go  on  to  college  rather  than  to  normal  schools,  because  col- 
leges offer  free  scholarships,  like  Cornell  university's  six  hun- 
dred free  scholarships. 
lo — Scholarships  are  superior  to  pensions  because  they  put  the 
emphasis  at  the  beginning  of  service. 

11  — Scholarships  would  secure  for  schools  not  those  who  drift  into 

normal  schools,  but  those  who  have  been  carefully  selected. 

12  —  The  amount  of  money  needed  for  scholarships  is  small  com- 

pared with  other  public  expenditures,  such  as  for  forestry,  ap- 
plied agriculture,  or  a  state  fair  of  one  week. 

13  —  Practically  every  other  civilized  country  pays  maintenance  in 

part  for  teachers  while  in  training  as  future  servants  of  the 
State. 

14  —  In  the  United  States,  New  Mexico  has  provided  free  scholar- 

ships at  three  State  normal  schools;  South  Carolina  gives  one 
hundred  and   twenty-five   free   scholarshii)s;   Akron   jxiys  $50 


ON    ADMINISTRATIVK    REORGANIZATION  465 

per  month ;  Maine  pays  all  expenses  for  a  six-weeks'  summer 
session,  including  railroad  fare,  board,  and  laundry  from  the 
time  they  leave  home  until  the  return,  for  one  hundred  teachers 
selected  on  a  basis  of  physical  and  mental  fitness  (and  further 
provides  for  a  bonus  at  the  end  of  the  next  year)  ;  Connecticut. 
Utah,  Arkansas,  Louisiana,  South  Dakota,  (Virginia)  permit 
loans  from  public  funds  to  prospective  teachers;  the  Smith 
Towner  bill  for  federal  aid,  which  is  being  considered  by  con- 
gress, provides  for  scholarships  to  encourage  a  greater  number 
of  talented  young  people  to  make  adequate  preparation  for 
public  school  service. 

Among  those  who  commended  the  proposal  for  scholarships  were 
cited  Commissioner  Calvin  M.  Kendall  of  New  Jersey,  the  new  president 
of  the  National  Educational  Association's  Division  of  Superintendence 
and  Dean  James  E.  Russell  of  teachers'  college,  Columbia  university. 

In  testing  the  appeal  for  scholarships  as  a  remedy  for  the  teacher 
shortage,  several  questions  must  be  asked  of  Ohio. 

1  —  Can  Ohio  afford  it  ? 

2  —  Will  the  remedy  work  —  v^ill  it  supply  a  sufficient  number  of 

teachers  ? 

3  —  Will  it  put  the  profession  on  a  sound  competitive  basis? 

The  answer  to  the  first  two  questions  is,  Yes.  Ohio  can  afford 
whatever  it  costs  to  have  teachers  enough.  There  is  no  such  thing 
as  a  human  society  unable  to  set  aside  from  its  earnings  or  its  men  and 
women  enough  energy  to  teach  the  coming  generation.  A  state  which 
has  520,000  automobiles,  almost  one  to  every  two  school  children,  and 
fifteen  to  every  teacher  can  afford  all  the  teachers  it  needs.  A  state  whose 
laborers',  employers',  farmers',  and  stockholders'  pockets  are  bulging 
with  profits,  as  are  these  in  the  state  of  Ohio,  can  afford  scholarships 
for  teachers  if  it  wants  to.  Scholarships  will  work,  too,  for  if  offered 
to  high  school  graduates  they  will  if  large  enough  attract  into  the  profes- 
sion a  large  enough  number  of  teachers. 

It  is  not  so  clear  that  the  third  question  can  be  answered  in  the  af- 
firmative, namely,  "Will  it  put  the  profession  on  a  sound  competitive 
basis?"  At  the  meeting  of  Ohio  school  men  during  N.  E.  A.  week  at 
Cleveland,  the  concensus  of  opinion  seemed  to  be  that  scholarships  would 
tend  to  perpetuate  not  to  remove  the  profession's  disqualifications.  The 
argument  against  scholarships  runs  like  this : 

I  —  The  argument  for  scholarships  wrongly  assumes  that  it  is  the 
initial  attracting  power  rather  than  the  holding  power  of 
teaching  which  is  endangered  by  too  low  salaries. 


466  KKPOKT    OF    JOINT    I.KC.ISI.ATl VE    COM  M  lTTi:i-: 

2  —  So  far  as  inability  to  live  without  earning  is  responsible  for 

the  small  numbers  in  teacher  training  schools,  that  difficulty  can 
be  better  overcome  by  state  loans  than  by  state  scholarships. 

3  —  The  more  the  state  pays  young  people  to  enter  teaching  training 

schools,  the  more  school  districts  will  be  encouraged  to  under- 
pay those  same  yoimg  people  after  they  begin  teaching. 

4 — Scholarships  cannot  overcome  in  the  minds  of  ablest  young 
people  the  competitive  disadvantage  of  a  profession  which  after 
graduation  pays  too  low  salaries. 

5  —  Paying   scholarships    will   help   conceal   other   difficulties   with 

teaching  than  too  low  salaries,  which  must  be  corrected  before 
the  profession  will  attract  large  enough  numbers  and  will  ex- 
cuse those  who  continue  and  create  unfavorable  conditions 
from  finding,  admitting,  and  correcting  the  mistakes  of  present 
practice. 

6  —  Paying  scholarships  without  exacting  a  high  standing  of  per- 

sonality, scholarship,  and  apparent  qualifications  for  teaching, 
will  attract  into  the  profession  a  large  number  unqualified  to 
uphold  its  standards. 

7  —  Unless  scholarships  are  paid  regardless  of  the  student's  ability 

to  pay,  the  service  will  soon  rank  as  a  charity  or  semi-charity, 
which  ablest  abilities  will  want  to  avoid. 

8 — Scholarships  used  to  attract  students  into  teacher  training 
schools  will  give  no  guarantee  whatever  of  an  increased  supply 
of  actual  teachers  unless  compulsion  is  used  to  enforce  the 
written  or  implied  contract,  which  compulsion  will  operate  to 
keep  away  the  ablest  abilities. 

9  —  If  accepting  a  scholarship  carries  with  it  a  pledge  to  teach,  the 
scholarship  will  accomplish  less  than  a  negotiable  student  loan 
which  does  not  interfere  with  the  student's  freedom  to  teach  or 
not  teach  according  to  his  proved  abilities  and  best  interests. 

10  —  Nothing  should  be  done  for  or  to  teaching  and  candidates  for 
teaching  which  will  put  teaching  on  any  other  than  a  competi- 
tive basis  with  all  other  services  to  society. 

It  is  a  (liflirult  question  to  decide  without  actual  tests.  There 
is  certainly  merit  in  President  iMcGilvrey's  suggestion  that  one  of 
the  normal  colleges  be  chosen  for  an  experiment.  It  is  recom- 
mended that  your  committee  suggest  to  the  legislature  an  experi- 
ment in  one  district — the  Kent  district  or  the  Bowling  Green  dis- 
trict— of  payments  to  teachers  in  training  on  the  following  condi- 
tions : 


ON    ADMINISTRATIVE    REORGANIZATION  46/ 

I  —  That  no  student  be  subsidized  who  does  not  belong  within  the 
district ;  who  has  not  a  high  record  in  high  school  scholarship ; 
who  has  not  a  first  rank  in  the  personality  needed  for  success- 
ful teaching; 
•  2  —  That  the  initial  acceptance  of  the  scholarship  and  the  receipt  for 
each  monthly  installment  carry  with  it  a  pledge  to  teach  in  the 
schools  of  Ohio  at  least  two  years  after  completing  the  course 
or  in  case  of  beginning  to  teach  before  finishing  the  course  a 
proportionate  time,  and  the  further  condition  that  if  the  holder 
does  not  teach  or  does  not  maintain  a  standard  of  scholarship 
while  in  school  which  permits  the  school  to  recommend  her, 
she  will  pay  back  the  scholarship  by  installments,  with  interest. 

As  a  corollary  to  this  suggestion  it  is  recommended  that  in 
another  district  a  second  experiment  be  made  of  a  state  bonus,  to 
graduate  teachers  from  the  normal  school  of  that  district  for  com- 
pletion of  each  of  the  first  two  or  four  years  of  teaching. 

If  one  hundred  teachers  were  encouraged  by  such  scholarship  or 
such  bonus  in  each  of  the  two  districts  to  take  a  two  year  course  at  each 
of  the  two  normal  schools,  Bowling  Green  and  Kent,  it  would  cost  a  hun- 
dred thousand  dollars  in  bonuses  for  the  Bowling  Green  district  and  a 
hundred  thousand  dollars  in  scholarships  for  the  Kent  district.  Thus,  for 
two  hundred  thousand  dollars  the  state  would  have  secured  two  hundred 
teachers  for  service  of  at  least  two  years  and  would  have  helped  settle  a 
question  that  is  fundamental  to  the  welfare  of  itself  and  every  other  state. 


LOAN  FUNDS  FOR  STUDENTS  PREPARING  TO  TEACH 

At  present  no  ajjpropriations  are  made  for  students'  loans  although 
privately  secured  funds  are  used  for  this  purpose. 

It  is  recommended  that  at  least  $20,000  be  voted  as  a  rotary  fund 
for  each  of  the  teacher  training  colleges. 

Student  loan  funds  have  proved  their  value  wherever  tried.  When 
administered  with  even  ordinary  care  the  losses  are  infinitesimal,  yet 
the  numbers  assisted  are  very  large.  Those  who  have  gone  to  college 
or  those  who  for  lack  of  funds  have  been  prevented  from  going  know 
how  a  few  dollars  often  stand  between  the  student  and  his  ability  to 
enter  or  continue  in  college.  If  it  requires  $300  to  spend  a  year  away 
from  home  without  earning,  a  student  might  as  well  not  have  anv  monev 
as  to  have  $250;  in  this  case  $50  at  the  end  of  the  year  is  but 
one-sixth  of  the  total  year's  cost,  but  it  means  a  whole  year  lost  unless 
it  can  be  found  or  counted  upon  at  the  beginning  of  the  year. 


468  REPORT    OF    JOINT    LEGISLATIVE    COMiMITTEE 

How  large  a  percentage  of  America's  high  school  graduates  go 
into  office  and  factory  instead  of  on  to  college  simply  because  tliey 
lack  the  relatively  small  amount  of  money  necessary  to  study  with- 
out earning,  no  one  knows,  and  no  one  has  ever  tried  to  find  out. 
We  do  know  that  the  proportion  is  very  large,  just  as  the  propor- 
tion is  large  of  elementary  children  who  stop  going  to  school  when 
they  finish  the  eighth  grade,  not  because  they  lack  ambition,  not  be- 
cause they  lack  superior  ability  in  studies  and  superior  promise  for 
vocations,  but  because  their  parents  actually  cannot  afford  or  mis- 
takenly believe  they  cannot  afford  to  get  along  without  their  chil- 
dren's small  earnings. 

When  education  is  democratically  organized  and  earns  the  two 
adjectives  free  and  universal,  which  America  so  generally  applies  to 
it,  no  instruction  will  be  given  free  to  any  boy  or  girl  who  is  able  to 
bear  the  expense  of  traveling  to  and  maintaining  himself  during  such 
instruction,  which  will  not  at  the  same  time  be  given  to  other  young 
people  of  equal  ambition  and  ability  who  for  no  fault  of  their  own 
are  unable  to  pay  the  railroad  bills  and  the  board  bills  and  room  bills 
necessarv  to  take  advantage  of  such  education. 

The  provision  of  public  loan  funds  by  Ohio's  normal  colleges  and 
universities  would  be  one  step  in  the  right  direction  because  this  step 
would  pay  interest  while  producing  teachers  and  other  professional 
men.     There  is  not  even  an  argument  of  expediency  against  it. 

A  subsequent  step  will  unquestionably  be  found  necessary  on 
grounds  of  justice  and  on  grounds  of  necessity,  if  our  great  common- 
wealths are  to  maintain  even  approximately  free  and  universal  higher 
education  ;  namely,  the  beneficiaries  of  such  opportunities  at  state  col- 
leges and  universities  will  be  required  to  give  negotiable  pledges  to 
pay  back,  out  of  their  later  incomes  and  "unearned  increments,"  to 
the  state  for  the  education  of  other  citizens.  When  that  time  comes 
there  will  be  no  reason  for  withholding  from  any  young  people  in 
Ohio  opportunities  for  higher  training. 

While  theargument  for  olan  funds  to  recruit  teachers  applies  also 
to  loan_  funds  for  recruiting  dentists.  ])hysicians,  engincer<i;  and  nurses, 
the  actual  presence  of  a  teacher  shortage  and  the  dramatic  or  lurid 
apeal  which  it  makes  to  the  imagination,  render  it  imperative  that 
the  state  consider  at  the  next  session  of  the  legislature  delinitelv  '^ettinij; 
aside  lonn  funds  as  rotarx-  funds  to  be  managed  by  the  teacher  train- 
ing schools. 

In  administering  these  funds,  several  basic  business  precautions 
should  be  observed : 

1.  Xo  loans  should  be  granted  without  the  type  of  investigation 
whicli  a  bank   makes  before  it   loans  its  client's  monev. 

2.  No  no.tes  should  be  taken  which  are  not  specific  as  to  interest 
and  dates  and  conditions  for  beginning  payment. 


ON    ADMINISTRATIVE    REORGANIZATION  469 

3.  No  notes  should  be  acceptcci  without  endorsement  Ijy  property 
h.olders  or  by  character  witnesses,  after  the  Morris   I'.ank  plan. 

4.  The  business  world's  method  of  collecting-  should  be  carefully 
followed. 

5.  The  amouiUs  should  be  fitted  to  the  needs,  established  by  in- 
vestig-ation.  i.  e,,  the  test  should  be  a  student's  ability  to  attend  or  to 
continue  without  the  assistance. 

6.  The  annual  report  should  not  publish  the  names  and  the  amounts. 

7.  The  annual  report  should  publish  the  status  of  each  fund  as 
a  whole  and  of  loans  by  classes,  for  example  those  signed  by  character 
endorsers,  those  signed  by  financially  responsible  parties,  parents  or 
otherwise,  those  for  teachers  already  in  service,  those  for  students  still 
at  school. 

8.  The  existence  of  these  funds  should  be  as  widely  advertised  a? 
are  the  needs  for  teachers,  or  the  attractions  and  rewards  of  teaching. 

9.  The  existence  of  loan  funds  should  in  no  way  prejudice  the 
state  against  the  experiment  with  bonuses  for  teachers  after  graduation 
and  scholarships  for  teachers  in  training,  as  outlined  in  the  preceding 
section. 

10.  Since  experience  shows  that  such  funds  can  be  administered 
with  profit,  the  amounts  for  each  institution  should  be  large  enough  for 
all  the  -'loans"  it  can  negotiate  while  ob'^erving  the  foregoing  conditions, 
which  means  enough  to  fit  the  prospective  teachers  whom  loans  and 
loans  only  will  recruit. 


OHIO'S  COUNTY  NORMAL  SCHOOLS 

In  1920  Ohio  has  35  county  normal  schools,  34  maintained  by  single 
counties,  one  maintained  by  two  counties.  Toward  these  35  county  nor- 
mals the  state  contributes  $1000  each  where  there  is  only  one  teacher  and 
$500  additional  where  there  is  a  second  teacher.  For  1921  the  total  of 
$50,000  has  been  appropriated  to  the  state  department  of  public  instruc- 
tion for  the  state's  share  of  maintaining  normal  schools. 

At  the  annual  convention  of  county  normal  directors  during  holiday 
week  1919,  a  desire  was  expressed  to  co-operate  with  your  committee 
in  its  search  for  facts  about  these  schools.  Eight  directors  collaborated 
in  forming  questions  sent  to  all.  Later  33  of  35  answered  these  questions 
and  filled  out  spot  maps  showing  home  towns  of  each  student.  Miss 
Marian  Mitchell,  director  of  the  Ross  county  normal  school  at  Chilli- 
cothe,  helped'  tabulate  returns  and  prepare  the  following  summary : 

I— Students  1920  —  580;  men,  65;  h.  s.  grads.  506;  not  grads. 

74;      lost     since     Sept.     i,     37;      highest    no.     students,     36; 

26  or   over,   three;   20  to  25,  nine;    15   to    19,    11;    10  to    14. 

eight ;  under  10,  one.    Schools  losing  one  or  more  since  Septem- 


4/0  Ki:i'()KT    OF    JOINT    I.l'LC.ISI.ATIVE    COM  M  ITTl-:i-: 

her,  21  ;  losing  none,  12;  losing-  only  i,  seven;  losing  2,  12; 
losing  3,  2.  Having  only  h.  s.  graduates,  13;  having  five  or 
more  non-graduates,  six;  having  half  or  more  non-graduates, 
five. 

2  —  Schools  having  graduates  in  1919,  28 ;  total  graduates,  468 ; 

now  teaching,  399;  in  rural  schools  302;  in  villages,  81;  in 
cities,  seven ;  in  other  counties,  57 ;  schools  having  graduates 
in  other  counties,  17;  highest  number,  17  in  Madison  countv  , 
in  Stark,  eight  of  14;  highest  number  in  village  school  14  ir: 
Logan  county,  next  largest  in   Madison. 

3  —  Graduates   since  organized,    1660,    of   whom    240   are   men; 

960  are  now  teaching;  174  in  other  counties;  808  in  rural 
schools;  196  in  villages;  55  in  cities  ;  highest  salary  is  $1800, 
next  highest  $1300,  next  $125  per  month,  next  $110  per 
month.  Lowest  salary  for  graduates  is  $50  per  month 
which  is  reported  b}'  only  one  county.  For  beginning 
salaries  the  highest  reported  is  $100  for  one  county,  Ot- 
tawa ;  eight  report,  $90 ;  seven  report,  $85. 

4  —  Contract  with   former   students,    for   29   counties   directors 

report  that  155  students  have  written  to  them;  104  have  been 
visited  by  18  directors  and  92  have  visited  20  directors.  The 
highest  nuniber  of  graduates  writing  to  one  director  was  30; 
next  highest,  15-12-11-10.  The  highest  numbers  of  graduates 
visited  by  directors  were  15  by  two;  1 1-8-7  '^Y  two.  The 
largest  niunber  of  graduates  that  visited  a  director  was  20 
(Muskingum),  the  next  10-7-6. 

5  —  Of  580  students  182  plan  to  go  to  state  normal  and  no  to  col- 

lege; a  total  of  292  or  a  trifle  over  one  half. 

6  —  Of  580  only  125  have  had  a  physical  examination  this  year,  64 

eye  examinations  only  and  "jy  eye  and  ear.  Since  schools  have 
no  record  of  previous  examinations,  hence  455  are  being  given 
this  year's  instructions  without  knowledge  as  to  their  physical 
needs. 

7  —  \'isils  to  the   schools   from   September  through  December  in- 

cluded these:  state  department  did  not  visit  18  of  33  schools; 
county  superintendents  failed  to  visit  six;  district  superin- 
tendents failed  to  visit  13;  board  mcml)ers  failed  to  visit  27; 
mothers  never  visited  22.  No  visits  were  paid  by  ministers  to 
26;  by  bankers  to  30;  by  dentists  to  31  ;  l)y  lawyers  to  32;  by 
business  men  to  25.  .All  told  i-j  county  superintendents  paid 
397  visits,  the  highest  being  40  times  by  two ;  only  two  visits 
being  made  by  two;  only  three  visits  ])y  four;  only  four  visits 
by  one;  10  or  more  visits  by  17. 


ox    A1)M]N1STKAT1\K    RKOKCIAXI ZATIOX  4/1 

8_  Of  489  students  reported,  216  live  at  home,  189  room  in  private 
homes  without  board  and  84  have  room  and  board  in  private 
homes. 

9  —  Schools  for  observation  range  from  o  (Carroll)  to  40  (Ot- 
tawa) ;  one  school  has  20;  other  high  numbers  run  from  16  to 
20  (Clinton  and  Highland)  15,  (Muskingum)  12,  (Scioto). 
Of  24  reporting  definitely,  16  observe  in  five  or  more  schools.- 

10  —  Schools  for  practice  diller  materially  from  schools  for  ob- 

servation, i.  e.,  Miami  reports  two  schools  for  observation  and 
•  10  for  practice.  Ottawa  practices  in  10  while  observing  in  40. 
Erie  practices  in  12.  The  village  schools  are  used  for  obscrvi- 
tion  by  18  schools  and  for  practice  by  25.  Centralized  schools 
are  used  for  observation  by  15  and  for  practice  by  12.  In  six 
counties  centralized  schools  are  used  for  observ-ation  but  not 
for  practice. 

11  _  In  full  charge  of  one  subject  the  highest  number  of  days  is  20 

by  four  schools,  while  one  day  was  reported  by  three  schools. 

12  — The  highest  number  of  days  in  charge  of  all  subjects  in  rural 

schools  was  30  (Tuscarawas),  the  next  highest  was  5  by  ii 
schools;  one  school  reported  ^  days,  two  schools  reported  2 
days,  three  schools  3  days  and  one  school  4  days.  In  full 
charge  of  all  subjects  is  five  days  by  10  (Madison)  and  five 
by  3  schools.  Two  report  ^  day;  four  report  i  day;  two  re- 
port o  days ;  twelve  do  not  report  and  others  report  full  charge 
of  subjects  only  in  village  school. 

In  33  (of  35)  schools  which  reported  to  your  committee,  there 
were  in  January  580  students  of  whom  all  but  74  were  graduates  of 
high  schools  and  65  were  men.  The  highest  enrollment  in  any  one 
school  was  36 ;  three  have  26  or  more  students ;  nine  have  from  20  to  25 ; 
eleven  have  from  15  to  19;  eight  have  from  10  to  14;  and  one  which  has 
been  established  five  years  reported  3  students.     This  makes  a  total  of 

20  out  of  35  county  normals  which  have  fewer  than.  20  students,  — a 
condition  that  points  to  the  need  for  more  aggressive  and  effective  re- 
cruiting  by  county  superintendents  and  normal  directors  with  the  aid  of 
high  school  principals  and  the  public. 

During  the  first  term  of  this  school  year  37  students  dropped  out  of 

21  schools,  12  schools  losing  nine,  12  loosing  two.  two  losing  three  and 
seven  losing  one. 

Of  33  schools  reporting  13  have  only  high  school  graduates  while 
20  have  five  or  more  non-graduates,  and  five  report  more  than  half  of 
their  register  to  have  less  than  a  high  school  training.  Yet  entrance  re- 
quirements are  completely  within  the  control  of  the  state  department  of 
public -instruction. 


4/2  KKl'OKT    OF    JOINT    LEGISLATIVE    COMMITTEE 

It  is  recommended  that  the  law  specify  that  no  person  shall  be 
registered  in  a  county  normal  school  who  has  not  a  first  grade  high 
school  certificate  or  its  equivalent. 

Since  first  organized  28  schools  reporting  for  from  one  to  five  years 
report  1660  graduates,  of  whom  the  large  total  of  240  were  men.  This 
fact  shows  that  teaching  still  has  an  appeal  for  men  and  indicates  that 
the  county  normal  school  can  be  used  to  recruit  strong  young  fellows  for 
teaching  and  to  interest  them  in  going  to  the  two  and  four-year  courses 
for  teachers. 

Of  the  total  graduates,  1660,  almost  two  in  three  or  960  are  still 
teaching,  808  in  rural  schools,  196  in  villages  and  55  in  cities.  A  little 
more  than  one  in  ten,  or  174,  are  still  teaching  in  other  counties  of  Ohio 
than  those  which  gave  them  their  training,  —  a  fact  which  justifies  state 
aid. 

Taking  the  year  1918-1919  alone,  there  were  468  graduates,  of  whom 
399  are  teaching  this  year,  302  in  rural  schools,  81  in  villages,  7  in  cities; 
one  in  seven  in  counties  other  than  those  which 'trained  them.  The  other 
side  of  this  picture  is  that  69  or  14%  have  stopped  teaching,  an  unknown 
number  thought  to  be  considerable  to  go  on  for  higher  teacher  training. 

When  only  one  county  nomial  is  looked  at  with  a  register  of  12  or  20 
it  seems  but  a  pitifully  small  drop  in  the  bucket  that  is  needed  in  Ohio. 
But  400  of  last  year's  elass  and  almost  1000  of  recent  classes  actually 
teaching  this  year  and  about  600  going  out  next  June  tell  an  impressive 
story  of  service  to  the  state  at  a  time  when  a  serious  shortage  of  teachers 
exists  and  a  more  serious  shortage  threatens. 

The  significance  of  these  figures  is  more  easily  understood  when 
they  are  compared  with  the  registration  at  the  two  independent  state 
normal  schools  in  the  north-east  and  north-west,  each  of  which  has 
capacity  for  about  iioo,  both  together,  however,  having  50%  fewer 
students  in  four  classes  than  the  county  schools  will  graduate  this  coming 
spring. 

Again  almost  as  many  teachers  will  actually  be  turned  out  this 
spring  by  these  under-supported,  over-worked  county  normal  schools  as 
Ohio  state  university's  college  of  education  has  graduated  in  six  years 
(683)  and  nearly  six  times  as  many  as  it  will  graduate  this  year.  It  is 
true  that  the  county  normal  schools  graduate  but  one  year  beyond  high 
school  whereas  the  college  of  education's  graduate  has  four  years. 

No  comparison  of  worth  to  the  state  is  intended  beyond  showing  the 
fact  that  toward  vacancies  that  exist  or  threaten,  the  county  normal  is 
turning  out  a  product  which  county  superintendents  say  is  of  immediate 
usefulness  to  their  schools. 

How  well  the  students  are  trained  in  the  county  normal  schools  is  a 
question  of  efficiency  not  of  organization.  For  making  sure  that  the 
work  is  well  done  the  present  organization  is  on  paper  satisfactory, 
that  is,  the  schools  have  presumably  the  constant  supervision  of  a  county 


ON    ADMINISTRATIVE    REORCIAX IZATION  4/3 

superintendent  who  is  presumably  chosen  because  of  his  abihty  to  train 
teachers  and  help  them  grow  and  the  further  supervision  of  the  state 
department  of  public  instruction  working  through  a  special  supervisor. 
As  a  matter  of  fact,  the  foregoing  summary  shows  that  these  schools 
do  not  receive  the  visits  which  they  should  receive  from  the  county 
superintendents  or  from  the  state  department's  supervisor.  The  failure 
to  visit  is  partly  due  to  an  inadequate  force,  that  is,  to  the  need  of  county 
superintendents  for  assistants  and  to  the  state  department's  need  for  at 
least  one  additional  supervisor,  but  it  is  also  largely  due  to  failure  on 
the  part  of  both  county  superintendent  and  state  department  to  use  their 
existing  force.  As  some  county  superintendents  have  found  it  possible 
to  give  attention  to  the  county  normal  schools —  40-36-18  visits  in  one 
term  —  all  county  superintendents  might  find  it  possible  and  most  bene- 
ficial for  their  county  schools. 

Similarly,  the  state  department  might  supplement  its  one  super- 
visor by  visits  and  attention  from  the  six  high  school  inspectors  who 
often  go  into  the  very  buildings  where  these  schools  are  located. 
The  main  reason  for  the  inadequate  supervision  is  that  no  effort  has  been 
made  to  keep  before  the  county  superintendents  and  the  state  depart- 
ment the  need  for  continuing  helpful  supervision  of  these  now  indispens- 
able normals. 

In  spite  of  limitations  inherent  in  a  system  that  gives  to  one  director, 
or  to  a  director  with  only  one  aid,  the  responsibility  for  all  the  work  of  a 
class  in  training,  many  county  superintendents  have  assured  your  com- 
mittee that  the  product  of  their  county  normal  schools  is  high  class  and 
immediately  useful.  Several  of  them  have  gone  so  far  as  to  say  that 
they  actually  prefer  a  graduate  of  this  one-year  county  normal  course 
to  graduates  of  similar  capacity  from  the  two-year  normal  courses.  This 
conclusion  should  be  taken  by  the  people  of  Ohio  not  as  reason  for  limit- 
ing preparation  of  teachers  to  one-year  courses,  but  rather  as  a  reason 
for  insisting  that  all  two  and  four-year  courses  shall  give  more  thorough 
content,  richer  curriculum,  more  practical  instruction  and  more  actual 
field  practice  in  teaching  and  managing. 

Why  do  students  wanting  to  teach  go  to  county  normal  schools  where 
there  is  perhaps  but  one  teacher  and  perhaps  most  inadequate  facilities, 
when  for  less  than  a  week's  pay  they  can  go  to  handsomely  equipped 
modern  normal  schools  with  highly  trained  faculties  ? 

One  answer  is  given  by  the  attendance  at  these  other  schools :  — 
From  home  and  contiguous  counties  the  registration  for  the  five  colleges 
of  education  is  857  or  50%  of  the  total  of  1694: 
184  or  72%  of  240  at  Bowling  Green 
91   or  43%   of  209  at  Kent. 
201   or  50%  of  409  at  Miami. 
123  or  30%  of  426  at  Ohio  University. 
258  or  63%   of  410  at  Ohio  State  University. 


474  KKl'OKT    OK    JOINT    I.KCIISLATIVE    COM  M  ITTIvK 

Another  answer  is  that  of  489  students  reported,  216  live  at  home 
while  attending  normal  school  and  189  others  go  home  over  Sunday  and 
live  from  Monday  to  Friday  in  private  homes  on  food  which  they  bring 
with  them.  Thus,  405  of  489  subsist  at  home  with  the  exception  of  the 
small  amount  necesary  for  a  room  or  part  of  a  room. 

Those  who  cannot  afford  to  go  the  greater  distance  to  Bowling 
Green,  Kent,  Athens  or  Oxford  where  normal  colleges  train  for  both 
elementary  and  high  school  in  two-year  and  four-year  courses,  or  to  Co- 
lumbus where  the  Ohio  state  university  trains  only  for  high  school,  are 
of  two  classes :  those  who  cannot  afford  tr  /oard  away  from  home  when 
not  earning  the  money  to  pay  their  board,  and  others  whose  parents  or 
who  themselves  do  not  at  present  see  advantages  in  going  to  a  state  nor- 
mal school  which  would  justify  expending  the  necessary  money  for  car- 
fare and  board.  What  proportion  of  county  normal  school  students  are 
in  each  class  no  one  knows.  It  is  significant,  however,  that  almost  half 
of  those  reporting  plan  to  go  either  to  normal  school  (184)  or  to  college 
(no).    Many  or  most  of  them  doubtless  will  earn  their  higher  education. 

That  to  many  of  them  even  the  county  normal  school  is  far  ejiough 
away  is  evident  from  the  fact  that  students  travel  as  much  as  5,  15,  22 
miles  twice  daily  to  and  from  county  normal.  At  one  time  during  harvest 
time  when  farm  labor  was  short  one  woman  student  milked  five  cows, 
took  them  to  pasture,  walked  two  and  a  half  miles  to  catch  a  bus,  rode 
twenty  miles  to  school,  went  back  the  same  way,  stopped  at  pasture  to 
bring  the  cows  in,  milked  them  again,  —  and  never  missed  a  day !  This 
student,  by  the  way,  was  taken  out  of  her  course  at  the  end  of  the  first 
term  to  fill  a  vacancy  where  her  county  superintendent  felt  she  could 
help  the  state  more  by  teaching  while  continuing  her  training  with  his 
help  than  by  staying  on  to  finish  her  one-year  course. 

Such  determination  as  many  of  these  county  normal  students  are 
showing  to  secure  the  training  necessary  to  be  teachers  is  a  great  asset 
to  any  individual  and  to  the  children  and  the  state  they  serve.  No  one 
looking  at  the  service  maps  which  picture  the  enrollment  of  students  at 
Ohio's  training  school  for  teachers  can  longer  wonder  whether  there 
should  be  county  normal  training  schools.  Not  only  should  there  be,  but 
there  must  be,  and  many  more  and  many  larger  schools  if  Ohio  is  to 
!iave  reasonable  hope  of  supj^lying  her  schools  with  teachers.  Past  ex- 
]K'rience  ]nits  the  burden  of  proof  on  the  52  counties  which  are  not 
maintaining  county  normal  schools. 

In  some  quarters  fear  is  expressed  that  the  development  of  the  countv 
normal  school  will  reduce  the  number  wanting  to  attend  the  regional 
state  normal  schools  and  will  gradually  lead  the  state  to  be  satisfied  with 
a  one-year  course  beyond  high  school  when  the  welfare  of  children  de- 
mands not  only  two  but  four  years  beyond  high  school. 

Experience  in  other  fields  as  well  as  in  Ohio  would  indicate  that 
this  is  not  a  correct  reading  of  human  tendencies.  Init  that,  on  the  con- 


ON    ADMINISTRATIVK    RKORC.AXIZATION  475 

trary,  the  number  wishing  to  go  into  normal  schools  will  greatly  increase 
with  the  number  who  are  enabled  to  take  the  first  step  near  thei)  own 
homes. 

If  Ohio  had  only  five  high  schools  their  registration  would  be  but  a 
handful  instead  of  mounting  thousands.  Even  within  cities  regional 
high  schools  are  needed  to  bring  high  school  education  within  general 
reach. 

The  cost  of  education  has  increased  so  that  every  practicable 
step  which  brings  education  to  the  home  will  increase  the  number 
who  go  on  with  their  education. 

That  is  why  Ohio  can  maintain  so  many  colleges;  that  is  why  the 
service  map  shows  clusters  of  spots  in  and  near  each  college  town. 

Such  was  the  view  taken  at  the  meeting  of  150  Ohio  educators 
during  National  Education  Association  week  in  Cleveland,  1920,  to 
consider  vour  committee's  possible  recommendations.  The  over- 
whelming judgment  was  that  the  county  normal  school  needs  en- 
couragement, greater  support  and  more  helpful  supervision. 

Bringing  the  first  steps  in  higher  education  and  in  preparation  for 
teaching  to  more  home  towns  does  not,  however,  compel  or  justify  the 
Ohio  practice  of  loading  up  already  overloaded  directors  of  county  nor- 
mals with  large  numbers  of  students  who  have  not  yet  fulfilled  the 
state  superintendent's  requirements  for  admission  that  they  be  graduates 
of  a  four-year,  first  ^rade  high  school.  Fortunately  the  proportion  of 
those  in  33  county  normals  who  come  with  less  than  four  years  of  high 
school  is  not  over  one  to  eight.  The  number,  however,  is  74;  six  high 
schools  have  five  or  more  who  lack  thp  too  low  equipment  while  Colum- 
l>iana  has  12  out  of  21,  Carroll  10  out  of  15,  Clinton  and  Highland  9  out 
of  10,  and  Scioto  6  out  of  18  who  come  for  a  one-year  course  in  train- 
ing not  yet  prepared  to  take  that  course. 

At  the  conference  of  county  normal  directors  several  directors 
cited  students  who  lacked  credits  because  there  was  no  four  year  first 
grade  high  school  in  their  home  town.  Reasons  were  given  for  believing 
that  these  students  because  of  their  earnestness  and  special  effort  — 
including  two  young  men  for  whom  a  moving  case  was  made  out  —  were 
better  students  than  others  who  had  received  a  four-year  course.  There 
certainly  is  merit  in  the  contention  that  when  men  and  women  present 
themselves  for  training  in  county  normal  training  schools  —  or  in  state 
normal  schools  and  state  universities  —  the  main  test  should  be  whether 
thev  are  prepared  to  take  the  work  that  will  be  given  them  in  the  future 
ralber  than  whether  they  have  done  certain  work  in  the  past.  There  are 
educators  of  first  rank  —  Dr.  James  H.  Dillard  of  the  general  education 
board  and  the  Slater  and  Jeanes  funds,  Dean  Balliet  of  New  York  uni- 
versity and  Dean  Trowbridge  of  Columbia  university,  —  who  insist  that 
in  our  higher  education  we  must  abandon  the  unit  or  credit  system  and  put 
a  pvcmumi  upon  ability  to  do  new  work.     As  a  practical  pioposition  in 


4/6  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

Ohio,  however,  in  the  absence  of  adequate  means  for  discovering  in  time 
those  who  can  do  the  new  work  without  hampering  others  in  their  class, 
*there  seems  every  reason  for  insisting  upon  full  compliance  with  the  ad- 
mission requirements  of  a  four-year,  first  grade  high  school  certificate. 

At  the  time  when  several  states  are  working  toward  four  years  of 
training  after  graduating  from  a  high  school  before  any  one  shall  be 
allowed  to  teach  in  any  state  school  even  in  the  kindergarten,  is  the 
wrong  time  for  Ohio  to  be  requiring  less  than  four  years  of  high  school 
for  admission  to  teacher  training  courses. 

What  shall  be  done  in  the  few  instances  where  students  who 
have  been  unable  to  attend  first  grade  high  schools  possess  knowl- 
edge of  the  common  branches,  plus  personality,  plus  application 
which  make  them  superior  in  promise  of  teaching  ability  to  others 
who  have  had  four  or  five  years  of  schooling?  In  fairness  to  such 
students  let  us  rcmeml)er  that  lowering  the  bars  does  not  help  them 
carry  a  course  for  which  they  lack  preparation,  does  not  help  other 
meml)ers  of  the  class  avoid  being  held  back  by  their  lack  of  prepara- 
tion, does  not  help  the  director  whose  burdens  are  greatly  increased 
1^}-  their  unpreparedness  which  is  no  less  a  burden  because  he  con- 
siders it  an  opportunity.  There  are  other  ways  of  meeting  the 
situation.  To  lower  the  bars  for  county  normal  schools  means 
evading  the  situation.  The  way  to  make  up  for  the  lack  of  first 
grade  high  schools  is  to  have  more  first  grade  high  schools  and  to 
use  every  individual's  disappointment  as  an  argument  for  increasing 
his  home  town's  high  school  facilities. 

!^ec<»n(lly.  young  people  who  lack  the  last  year  of  high  school 
preparation  should  be  encouraged  to  supplement  their  work  either 
by  extra  work  at  home  or  by  going  to  a  near-by  high  school  which 
has  the  fourth  year  of  approved  quality. 

The  following  summaries  of  difticulties  and  needs  of  the  county 
normal  schools,  as  reported  to  your  committee  by  directors,  empha- 
size tlie  need  for  the  larger  and  more  definite  program  of  helpful- 
ness by  the  state  department  of  public  instruction  w  hich  is  urged  in 
other  sections  of  this  report. 

Difficulties  were  reported  as  here  classified  by  the  number  of 
schofjls  given  in  parenthesis  after  each  figure. 

1  —  Competition  from  business  colleges  (3) 

2  —  Arranging  for  observation   (2) 

3  —  Conference  with  students:     time  (i)     place  (i) 
4 — Practice  facilities   (2) 

5  —  'I'ime  for  supervision  (7)     place  (6) 

6  —  Lack  of  assistant  (i) 

7  —  Local  teachers  unskilled  (i) 

8  —  One  room  schools  lacking  (2) 


ON    ADMINISTRATIVE    REORGANIZATION  477 

g  —  Board  of  education  does  not  furnish  necessities  (i) 

10  —  Does  not  settle  question  of  continuinff  the  school  (i) 

11  —  Lack  of  general  science  (i) 

12  —  Location  unfavorable   ( i ) 

13  —  Lack  of  board  and  room  (i) 

14  —  Difficulties  of  transportation  ( I '^ 

15  —  Unprepared  students  (2) 

16  —  Fitting  modern  methods  to  rural  teaching  (2} 

17  —  Lack  of  equipment  (i) 

18  —  Overcrowding  (i) 

19  —  Duties  too  varied  (3) 

20  —  Program  too  heavy  (2) 

21  — Refusal  of  state  normals  to  give  full  credit  for  county  normal 

time  (i) 

22  —  Difficulties  of  starting  a  new  school  ( i ) 

High  Spots  reported  included  these: 

1  —  News  column  in  county  papers  (2) 

2  —  Illustrated  booklet   (i) 

3  — Singing  (3) 

4  —  Alumni  organizaton  ( i ) 

5  —  Practice  teaching   (12).     Regular  teacher  observes  hfth  year 

grades  once  a  week,  special  class  for  tardy  pupils,  type  recita- 
tion in  history,  problem  recitation  in  geography,  students  take 
responsibility,  use  Landsittle's  guide,  teach  same  subject  each 
grade. 

6  —  Course  of  study   (12):     Socialized  recitation   (i),  dramatiza- 

tion of  reading  (2),  solid  content  of  course  (i),  inspirational 
content  (i),  course  in  picture  study  (i),  social  usage  (i), 
opera  stories  (i),  rural  life  in  Ohio  (i),  rural  Hfe  generally 
(i),  rural  domestic  science  (i),  exacting  scholarship  (i). 

7  —  Professional  library  (i) 

8  —  Traveling  library  ( i ) 

9  — Learning  by  doing   (13),  making  reports,  directing  exercises, 

directing  physical  training,  directing  picture  study,  exhibits 
literary  society,  conduct  noon  lunches,  story  telling,  current 
events. 

Suggestions  zvere  made  as  follows: 

1  —  Higher  salaries  for  county  superintendents    ( i ) 

2  —  For  directors  (3) 

3  —  Full  credit  by  state  normals  (7) 

4  —  Locate  in  county  seat  ( i ) 

5  —  More  union  of  counties  ( i ) 

6 —  Course  of  study  (5):     Rural  life,  fewer  changes,  two  years, 
more  English 


47^  KKPOKT    OF    JOINT    M:(;rSr.ATJ VE    COMMITTEE 

7 — State  department  should  give  more  support  (4)  :     Have  more 

power,  make  more  helpful  visits,  send  lecturers,  have  full  time  _ 

supervisor  fl 

8— Practice  teaching  (13);  Model  room  or  model  school  (5); 
full  time  supervisor  (i)  ;  assistant  (5)  ;  separate  practice  from 
observation    (2) 

9 — Standards  (7)  :  General  (5)  ;  of  teaching  (i) 

10  — Equipment  generally   (2):    Need  two  rooms  and  office 

11  — Publicity    (i)  :    State    department    should    furnish    high    spot 

magazine 

12  —  Co-operation  of  local  specialists  would  help   (i) 

13  —  Teachers  should  be  on  same  pay  as  state  normals'  (i) 

14  —  Students  should  be  ofifered  more  pay  as  teachers  (i) 

15  —  By  com])ining  two  counties  two  teachers  would  be  possible  (i) 

Needs  reported  numbered  70; 

1  —  Location  (2)  '^ 

2  —  Building :   ( 1 1 ) 

General  (3) 
Separate  room  (i) 
More  room  (7) 
Better  heating  system  (i) 
Better  lights   (i) 
Reading  room  (2) 
Rest  room  (i) 
Library  space  (i) 

3  —  Assistant  directors  (7) 

4  —  More  money  (3) 

5  —  More  students  (3) 

6  —  More  salary  (i) 

7  —  More  publicity  for  schools  (3) 

8  —  More  co-operation  :  ( 5 ) 

From  board  of  education  (3) 
Superintendent  (i)  . 
High  school  principal   (i) 

9  —  Practice  teaching:  (4) 

General  (i) 
More  time  (i) 
10  —  Equipment :  (26) 
General   (4) 
Bookcases  (2) 
Domestic  science   (3) 
Books  (5) 
Pictures  (2) 
Cabinet  (i) 


ON    ADMIXISTRATIVK    RKORClAN  IZATION  4/9 

Maps  (l) 

Magazine  rack  (i) 

Musical  instrument  (2) 

Facilities  for  teaching  agriculture  (i) 

Manual  training  (i) 

Record  system  (i) 

111  2  foregoing  suggestions  from  busy  county  normal  directors  prove 
th-  val'j^  ^+  a  round  robin  oi  hign  spots  and  suggestions;  in  fact  the 
county  normal  directors  have  so  felt  the  need  of  exchanging  experience 
that  through  their  ai^sociation  they  have  already  opened  a  round  robin 
service.  It  is  recommended  that  the  state  department  of  public  instruction 
through  its  special  supervisor  of  this  field  develop  correspondence  with 
directors  and  among  directors,  and  the  exchange  of  questions,  experiences, 
and  encouragement  through  round  robins. 

One  other  kind  of  work  which  can  be  done  only  by  a  state  depart- 
ment through  state  wide  publicity  is  suggested  by  a  county  director.  A 
rural  teacher  from  one  of  these  county  schools  recently  gave  as  one  of 
her  chief  reasons  for  not  wanting  to  teach  any  longer  in  the  country  the 
following:  A  teacher  is  required  to  make  a  religious  profession  even 
though  not  in  sympathy,  as  for  example  during  a  season  of  revival,  and 
"The  school  teachers,  O  Lord,  where  are  they?"  was  quoted  from  one 
Ohio  minister's  prayer.  Teachers  are  not  expected  to  be  human:  at  a 
teachers'  meeting  the  superintendent  said  there  was  too  much  friendship 
among  teachers:  one  man  teacher  had  taken  a  girl  teacher  out  riding. 
In  another  case  the  board  dismissed  a  very  able  woman  teacher  because 
her  superintendent  had  taken  her  to  several  entertainments. 

While  much  can  be  done  through  general  publicity  and  through  city 
and  county  superintendents  to  help  patrons  see  the  necessity  of  their 
supporting  teachers  for  school  work  without  punishing  them  for  religious 
differences  and  without  requiring  them  to  play  policeman  or  make  slaves 
of  themselves  to  overcome  pupils'  difficulties,  a  very  great  deal  can  be 
done  directly  through  the  county  normal  schools.  The  suggestion  is  re- 
peated that  these  schools  require  not  less  than  the  full  time  of  one  super- 
visor, plus  the  assistance  that  can  be  given  by  high  school  inspectors  when 
in  their  cities,  plus  assistance  that  can  easily  be  arranged  for  from  the 
colleges  which  are  giving  teacher  training  courses. 


480  KKl'OKT    OF    JOINT    Li:(  MSLATIVE    COMMITTEE 


COLLEGE  CRI':i)rr   EOK   COL'NTV  X()RAL\L  WORK 

It  is  reccmmended  that  the  law  require  each  state- supported 
institution  to  recognize  a  year  in  a  county  normal  school  as  the 
equivalent  of  a  year  in  one  of  the  normal  colleges  or  Ohio  state 
university. 

At  the  holiday  convention  of  county  normal  school  directors  with 
your  committee's  field  agent  there  was  practically  unanimous  oj^inion  to 
the  effect  that  one  reason  why  it  was  so  hard  to  secure  students  for  the 
county  iiormal  school  was  the  refusal  of  the  normal  colleges  to  give 
full  credit  for  time  spent  in  the  normal  school.  Later  conferences  and 
correspondence  confirmed  this  testimony.  It  is  inevitably  discouraging 
to  young  men  and  young  women  who  work  as  hard  and  as  earnestly  as 
county  normal  students  do  work  to  have  their  time  discounted  when  they 
])resent  themselves  foi  the  next  opportunities  ofifered  by  the  state.  In 
practice  they  are  required  to  ofifer  a  full  year  at  the  county  normal  plus 
a  summer  course  or  more  as  the  equivalent  of  one  year  in  a  state  normal 
school.  This  requirement  would  be  unfair  to  the  state  and  to  its  pro- 
gram for  recruiting  teachers  even  if  it  were  fair  —  as  it  is  not  —  to  the 
uidividual  county  normal  student. 

To  refuse  full  credit  is  an  evasive  way  of  meeting  the  situation 
which  state  normal  schools  have  in  mind,  namely,  that  in  nianv  county 
normal  schools  the  work  is  not  of  the  same  grade  as  the  first  \"ear  in  a 
state  normal.  The  right  remedy  for  this  condition  is  not  to  contimie 
work  that  is  not  equivalent  to  state  normal  instruction,  is  not  to  assume 
that  the  county  normals  must  of  necessity  be  conducted  in  a  less  com- 
petent way,  but  rather  to  make  sure  that  a  year  in  the  county  normal 
is  equal  to  a  year  anywhere  else. 

In  suggesting  that  the  law  prexent  a  frank  discrimination  against 
county  normal  schools  on  the  assumption  that  time  there'  is  worth  but 
three-fourth  or  five-sixth  as  nnich  as  time  in  a  state  normal,  it  is  not 
intended  to  suggest  that  an  indixidual  student  who  pro\es  his  inca])acit\- 
to  continue  in  a  state  normal  shall  be  continued.  On  the  contrary,  it  is 
intended  to  place  the  county  normal  in  the  same  relation  to  the  state  nor- 
mal for  its  year  in  addition  to  a  high  school  certificate  that  the  high 
schools  are  in  with  res])ect  to  th(>  admission  of  their  students  to  the 
universities  and  normal  colleges.  There  is  nothing  in  the  law  which 
compels  any  stati'  institution  of  higher  learning  to  keep  a  student  one- 
hour  after  he  has  proved  h's  inability  to  do  the  assigned  work.  Tlu' 
law  simply  says  wha.t  ])ul)lic  sentiment  throughout  the  coinitrx  has  r'-- 
(juircd  the  law  to  ^ay  and  will  un(iuestional)]\-  continue  to  demand,  namely, 
that  the  state  shall  not  admit  Ihe  right  of  an\  higher  institution  of  learn- 
ing to  refuse  to  recognize  \hv  work  of  secon(lar\-  schools  which  have 
been  certified  by  the  state  department  of  public  instruction. 


ON   ADMINISTRATIVE    REORGANIZATION  481 

Whether  speaking  of  county  normal  schools  or  high  schools  the 
remedy  for  too  low  standards  is  not  an  arbitrary  line  against  certain 
classes  of  public  schools  but  an  intelligent  and  insistent  policy  of 
supervision  and  helpfulness,  which  will  bring  all  schools  of  a  class 
up  to  the  stan.dard  necessary  for  the  next  step  in  advance. 

One  other  step  is  needed  at  once  to  raise  the  standard  of  county 
normal  schools, — directorship  salaries  should  be  greatly  increased,  at 
least  doubled,  end  correspcndinsg  increases  required  in  experience  and 
personality  qualifications.  Instead  of  paying  only  $500  toward  a 
second  teacher's  salary  the  state  should  pay  not  less  than  half  and 
would  profitably  pay  60%  in  order  to  encourage  increasing  register 
evervwhere  until  a  second  teacher  is  needed. 


SLACKER  COUNTIES  IN  TEACHER  TRAINING 

The  service  maps  which  show  for  the  state  as  a  whole  and  for 
each  of  the  state  supported  educational  institutions  the  number  of  stu- 
dents who  are  preparing  to  teach,  can  be  helpfully  used  in  many  ways 
by  all  officers  and  students  who  are  attempting  to  compare  the  benefits 
that  ought  to  be  realized  with  the  benefits  that  are  being  realized  from 
teacher  training  schools. 

Slacker  counties  is  used  as  the  title  of  this  section  to  emphasize 
the  parasitism — unconscious  of  course,  but  none  the  less  parasitical — 
of  county  after  county  which  while  demanding  teachers  for  its  schools 
is  failing  to  furnish  apprentices. 

It  is  not  necessary  here  to  point  out  counties.  Where  a  county 
employing  250  teachers  has  only  three  young  men  and  women  training 
for  teaching,  it  is  a  slacker  county.  Any  other  county  is  a  slacker 
county  which  is  not  furnishing  the  quota  of  teachers  in  training 
which  is  necessary  to  meet  at  least  its  own  requirements. 

(See  service  map  on  page  440) 


THE  COMBINED  NORMAL  AND  INDUSTJRIAL  DEPARTMENT 
AT  WILBERFORCE  UNIVERSITY 

This  institution  for  negro  students  (605  in  1919  including  30  in  the 
practice  school)  is  entirely  state  supported.  It  was  created  by  the  legis- 
lature in  1889,  (G.  C.  7975).  Seven  years  later  in  1896  the  legislature 
reorganized  this  department  under  a  separate  taxable  property  of  the 
state,  the  rate'  to  be  fixed  once  in  two  years  and  to  start  at  thirty-five- 
ten-thousands  of  one  mill  upon  each  dollar  of  taxable  property  evaluated. 

Although  the  laws,  (G.  C.  7985)  provide  that  each  senator  and  re- 
presentative of  the  General  Assembly  may  designate  one  or  more  youth 

31 


482  REPORT    OF    JOIXT    LEGISLATIVE    COMMITTEE 

of  his  district  who  shall  he  entitled  to  attend  this  department  free  of 
tuition,  there  were  44  comities  without  representation  of  students  in  19 19, 
only  24  counties  had  more  than  one  and  of  224  Ohio  residents  it  is  es- 
timated by  the  institution  "within  accurate  data",  85%  were  known  to 
have  been  suggested  by  assemblymen  and  senators. 

It  is  recommended : 

I  —  That  all  connection  whatsover  with  the  privately  supported 
Wilberforce  university  be  severed. 

At  present,  the  state  appropriates  $5,000  a  year  to  be  spent  for 
"teaching  service  at  Wilberforce  university".  Literally  and  legally  this 
sum  may  be  a  payment  for  services  rendered  rather  than  a  subsidy.  In 
moral  effect  and  in  actual  practice  it  borders  so  closely  upon  the  type 
subsidy  which  the  constitution  prohibits,  that  it  should  be  avoided. 

The  reason  for  the  constitution's  prohibition  of  subsidies  to  private 
agencies  is  illustrated  by  the  following  ways  in  which  the  state  is  party 
to  extra  legal  and  illegal  exploitation  of  itself  and  its  students  by  the 
private  cooperator,  Wilberforce  university: 

1  —  $5,000,  as  above,  for  services  without  any  control  over  these 

services. 

2  —  $2,500,   which  W^ilberf orce  charges   state  students   registering 

in  academic  subjects,  although  Wilberforce  students  pay  no 
tuition  for  state  instruction  in  vocational  subjects. 

3  —  $750,  library  fees  charged  state  students. 

4  —  $600,  one-half  the  librarian's  salary  for  attending  to  a  library 

in  a  private  building  used  by  private  college  students  also. 

5  —  $500,  one-half  the  new  books  each  year  used  jointly. 

6  —  $500,  one-half  the  preceptress'  salary  for  joint  services. 

7  —  $540,  one-half  physical  director's  salary  for  joint  services. 

8  —  $500,  one-half  sewage  disposal  plant  cost. 

9  —  $750,  one-half  hospital  cost. 

10  —  $1,000,  one-half  use  of  auditorium  which  it  u.^es  dailv. 

11  — $900,  light  and  water. 

12  —  $2,500,  rental  value  of  academy  Iniildings,  heated. 

13  —  $22  rental  value  of  athletic  field,  never  computed. 

14  —  $22,  rental  of  gymnasium,  never  computed. 

15  —  $22,   its   share  of  depreciation   of   state   property   used  by   its 

students,  never  computed. 

16  —  $16,140  plus  several   thousand  more   for  rentals,  upkcej)  and 

depreciation,  every  dollar  of  which  is  spent 

1  —  Without  ])roper  control ; 

2  —  Undoubtedly  in  violation  of  the  spirit  if  not  the  letter  of 
of  the  Constitution,  as  shown  by  Attorney  General  Sheets' 
opinion  of  Nov.  30,  1903,  and 


ON    ADMINISTRATIVE    REORGANIZATION  483 

3  —  To  the  clear  detriment  of  the  state's  own  institution.  A 
searching  investigation  would  undoubtedly  disclose  many 
other  losses  to  the  state  due  to  this  unwise  relation. 

Laymen  find  it  hard  to  see  that  this  present  relation  does  not  violate 
article  6  section  2.2  of  the  Ohio  constitution  which  reads:  "But  no 
religious  or  other  sect  or  sects  shall  ever  have  any  exclusive  right  to  or 
control  of  any  part  of  the  school  funds  of  the  state." 

Instead  of  putting  a  state  supported  institution  in  a  position  where 
it  must  practically  spend  $5,000  a  year  on  the  kind  of  service  and  the 
kind  of  course  which  a  private  institution  has  to  offer,  the  state  should 
see  to  it  that  its  own  institution  plans  the  right  kind  and  quality  of  serv- 
ice and  has  the  money  necessary  to  pay  for  that  service.  As  it  actually 
works  out,  this  industrial  school  in  attempting  to  use  faculty  members  and 
courses  provided  by  Wilberforce  university  for  students  preparing  for  the 
ministry  and  taking  academic  college  courses,  has  retained  a  number  of 
disserviceable  highly  academic  courses  that  seriously  misfit  the  voca- 
tional purpose  of  the  normal  and  industrial  school. 

Freed  from  the  influence  and  the  glamour  of  academic  subjects,  it  is 
inconceivable  that  industrial  courses  will  be  requiring  five  terms  of 
French  or  German  for  a  course  of  carpentering;  three  terms  of  German, 
French  or  Spanish  in  the  first  two  years  of  mechanical  engineering;  three 
terms  of  psycholog}',  two  of  principles  of  teaching,  two  of  history  of 
education  and  two  of  educational  sociology,  in  a  two  year  teacher's 
course  in  printing,  etc. 

A  second  tie  to  be  broken  concerns  the  board  of  trustees,  'z.^ 
members  of  which  are  now  chosen  by  the  board  of  trustees  of  the  private 
institution,  Wilberforce  university.  By  section  7976  the  university  is 
entitled  to  four  members.  The  state  names  five.  If  this  step  is  taken 
it  will  be  necessary  to  amend  section  7975,  which  now  says  that  this 
school  shall  be  maintained  ''at  Wilberforce  university  in  Greene  county, 
Ohio"  by  striking  out  the  word  "university".  This  will  leave  the  school 
at  Wilberforce. 

The  arrangement  has  not  worked  out  happily  from  the  standpoint 
of  the  state's  department.  There  has  been  growing  friction  which  in 
19 19  reached  the  stage  where  it  was  necessary'  for  the  legislature  to  in- 
tervene atid  to  appoint  a  special  investigation  committee. 

One  reason  for  the  difficulty  between  the  two  institutions  is  the  fact 
that  the  oft'spring  has  been  greatly  over-shadowing  the  parent  institu- 
tion. In  1905  there  were  154  in  Wilberforce  university  and  155  in  the 
normal  and  industrial  department.  This  slight  difl:'erence  of  one  out  of 
154  to  the  advantage  of  the  latter  has  grown  until  in  1920  there  are 
one-half  more  (605)  now  in  that  department,  than  in  the  combined  col- 
lege academic  and  theological  seminary  (407).  How  far  the  increase  in 
Wilberforce  university  from  its  low  point  of  112  in  1909  to  407  in  1920 


484  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

is  due  to  state  investment  in  the  normal  and  industrial  department  is  not 
an  important  question  for  the  state.  It  is  important  that  after  twenty 
years  slightly  over  one-third  of  the  present  registration  or  224  of  the 
total  registration  is  from  the  state  of  Ohio  and  that  nearly  two-thirds 
of  the  total  state  expenditure  for  this  institution  is  for  non-residents' 
of  Ohio. 

2  —  That  the  present  board  be  abolished  and  a  new  board  of 

five  members  be  created  to  be  appointed  by  the  governor. 

While  not  necessary,  it  is  probably  advisable  to  put  in  the  law  the 
proviso  that  no  one  of  the  five  trustees  shall  be  chosen  from  the  member- 
ship or  officers  of  the  board  of  trustees  of  Wilberforce  university.  With 
the  naming  of  a  new  board  should  naturally  come  a  great  increase  in 
board  attention.  Now  the  minutes  are  chaos  and  there  is  every  indica- 
tion of  treating  this  institution  as  a  "poor  relation"  to  Wilberforce  the 
private  university. 

3  —  That  a  tuition  fee  be  charged  non-resident  students  of  at 

least   $100.09  a   year   in   addition  to    all   the   fees   charged 
resident  students. 

In  case  later  the  terms  are  changed  to  four  quarters  instead  of  two 
semesters,  this  tuition  fee  should  read  at  least  $25.00  a  term  or  quarter. 

In  the  first  semester  of  the  current  school  year,  381  of  605  students 
came  from  outside  Ohio,  42  of  81  normal  students  and  339  of  524  voca- 
tional students.  As  these  figures  show,  this  institution  is  maintained 
primarily  for  out-of  Ohio  students.  Entirely  apart  from  the  question 
whelther  Ohio  has  reason  or  has  means  to  maintain  a  school  here  for 
negro  students  from  other  states  there  is  the  more  important  question 
whether  the  presence  of  this  large  number  of  non-residents  is  not  blind- 
ing the  management  to  important  needs  in  Ohio  which  it  should  be  tr}^- 
ing  to  meet. 

If  there  were  only  resident  students  there  this  year,  they  would  re- 
port 39  in  the  normal  school  and  155  in  the  four  classes  of  many  voca- 
tional courses  and  30  practice  school  pupils.  A  total  of  194  bona 
fide  students  wouJd  seem  pretty  small  as  it  seems  small  on  the  spot  map, 
but  the  grand  total  of  605  makes  a  pretty  large  institution  and  the  man- 
agement easily  forgets  that  it  is  reaching  but  a  small  fraction  of  its 
natural  constituents. 

While  of  course  it  is  now  possible  to  focus  the  attention  upon  the 
very  small  resident  students  and  to  canvass  the  state  for  students  who 
need  this  institution,  it  is  expensive  to  lose  the  prod  of  ambition  for  size. 

The  suggested  tuition  is  set  with  the  distinct  idea  of  discouraging 
non-resident  students.  Unless  the  state  is  willing  to  do  this  it  would  be 
better  to  impose  a  charge  that  would  make  this  out-of  state  traffic  self- 
supporting,  and  to  go  into  the  business  of  advertising  the  school  as  widely 
as  possible  witli  a  view  to  recruiting  students  who  will  pay. 


ON    ADMINISTRATIVE    REORGANIZATION  485 

4  —  That  the  state  department  of  public  instruction  be  required 

to  visit  this  institution,  to  keep  in  touch  with  this  work  and 
to  report  annually  to  the  governor  and  biennially  to  the 
legislature  the  principal  facts  regarding  it. 

The  work  which  this  institution  was  intended  to  do  is  of  great  iiTK 
portance  to  all  people  in  the  state.  Ohio's  industries  need  trained  artisans 
and  can  not  continue  to  ignore  the  resources  of  the  negro  citizens.  If 
however,  this  institution  is  to  be  conducted,  it  should  have  the  benefit  of 
all  the  experience  of  other  institutions  in  the  state  and  of  the  best  voca- 
tional practice  in  the  country.  Rendering  this  service  is  a  natural  duty 
of  the  state  department  of  public  instruction. 

5  —  That  the  extension  classes  be  greatly  extended. 

Where  now  this  extension  work  is  of  little  consequence  and  affects 
but  a  few  groups  totalling  135  in  three  places,  it  should  be  a  strong 
factor  in  all  industrial  cities.  In  fact  there  is  grave  reason  for  ques- 
tioning whether  the  greater  task  of  this  institution  should  not  be  exten- 
sion work.  Instead  of  taking  1S5  young  people  to  a  country  school 
remote  from  industrial  processes,  it  would  be  better  to  take  the  teachers 
to  a  much  larger  number  of  industrial  workers  where  they  are  actually 
at  work  and  where  their  daily  work  can  be  correlated  with  their  instruc- 
tion at  school. 

6  —  That  the  state  consider  entertaining  the  offer  of  Wilber- 

force  university  to  pay  $250,000  for  the  state's  plant. 

This  offer  was  made  publicly  by  the  president  of  the  board  of 
trustees  of  Wilberfcrce  university.  The  plant  is  worth  three  times  the 
amount  that  is  offered  but  the  plant  is  in  the  wrong  place.  Conceding 
remarkable  success  during  the  next  ten  years  at  this  institution,  it  can 
still  do  but  a  very  small  service  on  its  present  site.  A  small  part  of  this 
extra  expense  put  into  expert  teaching  in  industrial  neighborhoods  where 
the  plants  are  furnished  either  by  city  high  schools  or  by  industrial  plants 
themselves  would  accomplish  vastly  more  for  the  vocational  education  of 
the  negro  of  Ohio. 

One  of  the  buildings  belonging  to  the  state  stands  on  ten  acres  of 
land  that  belongs  to  Wilberforce  university  and  it  is  estimated  by  the 
management  to  be  worth  from  six  to  sevep  hundred  dollars  an  acre, 
or  in  all  from  six  thousand)  to  seven  thousand  dollars  for  this  piece  of 
property,  the  only  property  in  which  there  is  a  joint  ownership. 

To  residents  of  the  state  no  charge  is  made  for  room.  To  non- 
residents a  room  charge  of  $5.00  a  term,  or  $15.00  a  year  is  made.  There 
is  no  reason  why  free  room  rent  should  be  given  to  Ohio  students  at  this 
institution  any  more  than  at  any  other  institution  in  the  state.  There 
seems  no  reason  whatever  for  charging  non-residents  less  than  the  actual 
cost  to  the  state  of  furnishing  those  accommodations. 


486  REPORT    OF    JOINT    LEGISLATIVE    COM.MITTEE 

From  the  annual  report  of  Wilberforce  university  and  the  combined 
normal  and  industrial  department  no  evidence  is  obtainable  as  to  the 
profit  or  loss  entailed  in  conducting  a  boarding  department.  To  the  ex- 
tent that  the  state  of  Ohio  is  jointly  responsible  for  the  character  of  this 
report,  it  is  inexcusable.  The  report  of  the  state  auditor  throws  no  light 
upon  this  business.     The  budget  makes  no  direct  appropriation. 

Where  it  has  capacity  for  180  in  its  dining  room  it  is  trying  to  care 
for  253;  in  O'Neil  dormitory  for  boys  there  are  117  where  capacity 
is  80;  in  Arnett  and  Mitchell  Hall  for  girls  there  is  an  average  of  25 
and  14  above  capacities  of  90  and  60. 

The  catalogue  shows  lack  of  cohesion  and  clear  planning.  The  argu- 
ments which  the  managers  have  made  for  divorce  from  the  private  Wil- 
berforce are  many,  of  tliem  proof  conclusive  that  a  complete  inventor}' 
should  be  taken- by  the  state  of  the  institution's  aims,  facilities,  personnel, 
results  and  blinding  political  influences. 

7  —  That  the  normal  department  be  abandoned. 

There  are  five  state  normal  schools  in  Ohio  for  the  training  of 
teachers  besides  35  county  normals  and  six  city  normals,  to  all  of  which 
the  negro  students  are  welcomed.  In  January,  1920,  there  were  but  39 
resident  students  in  the  normal  department.  They  could  be  vastly  better 
taken  care  of  if  distributed  among  the  other  normal  schools.  Unless 
eitort  is  to  be  made  to  recruit  a  very  much  larger  number  of  negro 
women  for  teaching  there  seems  no  justification  for  maintaining  the 
heavy  over-head  that  is  detailed  for  so  small  a  normal  group.  In  three 
years  there  were  graduated  from  the  normal  department  44  Ohio  stu- 
dents. This  does  not  indicate  a  demand  for  a  special  school  for  negro 
students. 

8  —  That   the   business    and    educational    management    be    in- 

tensively studied  by  the  governor  and  the  legislature  from 
the  stzmdpoint    of  its   efficiency. 

POSTSCRIPT 

In  April,  two  months  after  the  foregoing  summary  was  written, 
additional  information  was  obtained.  Your  committee  chairman  asked 
that  action  on  the  report  be  deferred  until  the  field  agent  could  see  the 
report  of  another  joint  legislative  committee  specially  appointed  to  in- 
vestigate the  Wilberforce  institutions,  and  secure  the  educational  sub- 
committee's report.  Later  it  was  learned  that  the  Wilberforce  board  had 
recently  reorganized,  had  named  as  president  a  newly  appointed  former 
member  at  the  first  meeting  attended  by  him,  had  installed  his  sister  long 
past  three  score  years  as  matron  of  the  woman's  dormitoiy,  and  after 
declaring  the  superintendent's  office  vacant  as  of  July  first,  had  per- 
mitted him  to  resign. 


ON   ADMINISTRATIVE    REORGANIZATION  487 

These  steps  have  been  taken  by  a  board  in  which  four  of  nine  mem- 
bers are  named  by  a  private  religious  corporation.  They  vote  together, 
i  hey  need  but  one  vote  to  determine  action  for  a  state  institution.  The 
condition  is  none  the  less  sinister  because  two  state  members  voted  with 
the  privately  appointed  members,  one  of  them  being  elected  chairman  be- 
sides being  joined  in  the  service  by  a  relative  on  a  paid  post. 

Such  results  are  invited  by  the  relation  which  the  state  has  estab- 
lished with  this  private  institution.  Such  results  and  worse  are  in- 
evitable where  any  private  agency  is  in  position  to  play  parasite  on  the 
state  treasury.  They  would  not  be  tolerated  if  due  to  any  church  of 
w'hites.  They  are  not  more  tolerable  because  Wilberforce  university  is 
managed  for  negroes  by  negroes. 

It  is  a  shocking  demonstration  of  contempt  for  the  public  as  partner 
that  this  board  dominated  by  a  religious  corporation  should  begin  its 
response  to  a  state  appeal  for  helpful  co-operation  by  dismissing  a  state 
officer  whose  worst  ofifense  against  "co-operation"  was  trying  to  build  the 
state's  work  and  to  reduce  interference  from  private  sources. 

The  recommendation  that  a  complete  divorce  be  effected  is  re-en- 
forced by  these  happenings.  It  is  unfair  to  the  negroes  of  Ohio  to  give 
state  countenance  to  conditions  that  will  inevitably  debauch  some  of  their 
number  and  reflect  discredit  upon  them  all. 

Instead  of  concurring  in  the  recommendations  of  the  other  joint 
legislative  committee's  three  educational  specialists,  your  field  agent 
believes  that  harm,  not  good,  will  come  from  continuing  the  interrelation- 
ships of  the  state's  vocational  and  normal  school  with  Wilberforce 
academic  and  theological  schools.  For  much  less  than  the  $12,500  actual 
cost  which  now  goes  annually  to  the  private  institution  adequate  state 
service  with  no  drawbacks  can  be  purchased.  There  is  no  reasonable 
hope  for  developing  worthwhile  industrial  attitudes  and  work  among 
negro  students  in  a  state  supported  institution  who  are  dependent  for 
content  and  method  of  instruction,  or  for  attitude  toward  their  industrial 
future  and  the  life  it  makes  possible,  upon  instructors  chosen  primarily 
for  a  theological  seminary,  a  liberal  arts  college  and  a  "modern  pre- 
paratory school". 

$12,500  spent  upon  extension  work  in  industrial  centers  as  earlier 
recommended  would  do  infinitely  more  for  negro  education  without 
throwing  any  obstacles  and  contumely  in  its  way. 


SHALL  OHIO  HAVE  A  CHANCELLOR  OF  EDUCATION? 

If  the  time  comes,  as  elsew^here  recommended,  when  degrees  of  each 
state-supported  institution  will  be  given  by  the  state  of  Ohio  and  not 
merely  by  the  institution,  there  will  appear  need  for  a  central  mobilizer 
of  vision  with  respect  to  educational  needs  and  of  understanding  with 


488  REPORT    OF    JOINT   LEGISLATIVE    COMMITTEE 

respect  to  educational  practices.  Shall  this  overseer  be  a  chancellor  apart , 
over  all  institutions?  Shall  he  be  also  the  administrative  head  of  Ohio 
state  university,  or  shall  he  be  the  state  director  of  education? 

No  educator  in  the  state  should  ever  be  given  prestige  higher  than 
that  of  the  state  director  of  education  by  whatever  name  he  is  called. 
With  the  term  "chancellor"  Mrill  go  highest  prestige.  Therefore  it 
is  suggested  that  if  the  time  comes  when  a  chancellor  is  required, 
the  title  be  given  to  the  officer  responsible  for  the  state  department 
of  public  instruction.  The  man  whose  sweep  includes  children  who 
have  not  }ct  started  to  school,  children  in  rural  schools,  students  in  county 
normals  and  universities,  should  be  accorded  a  leadership  not  second  to  a 
man  whose  sweep  includes  the  relatively  small  percentage  who  go  to  one 
or  all  of  the  state  universities. 


UNSETTLED  EDUCATIONAL  PROBLEMS  IN  OHIO 

Among  the  unsettled  problems  the  following  call  for  early  study  by 
the  universities  and  colleges,  by  the  state  department,  by  unofficial  private 
associations  that  include  representatives  of  private  colleges,  and  by  a  state 
educational  council  such  as  earlier  suggested: 

1  —  Can  the  state  develop  junior  colleges  in  other  fields  than  educa- 

tion at  Bowling  Green  and  Kent  without  endangering  the  pres- 
tige of  its  teacher  training  course  ? 

2  —  Would  the  payment  of  $50  a  month  to  teachers  in  training 

materially  increase  the  supply  of  teachers  without  discrediting 
the  profession  and  delaying  the  adequate  salary  recognition  of 
it? 

3  —  Has  the  time  come  to  modify  the  requirement  that  private  col- 

leges wishing  to  certify  teachers  must  give  a  minimum  of  thirty 
hours  of  so-called  professional  instruction,  or  does  experience 
prove  that  the  character  rather  than  the  amount  of  professional 
instruction  should  be  changed? 

4  —  Will  Cincinnati,  Akron  and  Toledo  continue  to  maintain  munic- 

ipal universities  and  at  the  same  time  pay  their  share  toward 
state  supported  universities,  or  must  the  time  soon  come  when 
in  fairness  to  these  centers  and  other  centers  that  wish  munic- 
ipal junior  colleges,  colleges  or  universities  the  state  must  either 
take  over  the  cost  of  the  universities  or  make  payment  in  pro- 
portion to  service  rendered? 

5  —  Should  the  city  normal  schools  be  left  exclusively  to  municipal 

support  and  supervision  or  must  the  state  recognize  its  inter- 
est in  the  teacher  supply  and  teacher  quality  and  the  demands 


ON   ADMINISTRATIVE    REORGANIZATION  4S9 

of  equitable  treatment  by  making  state  contributions  toward 
city  normal  schools  ? 

6  —  Is    it    possible    to    reorganize    and    readjust    the    professional 

courses  so  that  it  will  not  be  necessary  for  Ohio  State  Uni- 
versity to  give  any  elementary  courses  and  any  junior  college 
courses  in  any  one  of  its  professional  schools? 

7  —  Is  there  any  present  day  reason  for  continuing  junior,  senior 

and  graduate  work  outside  of  avowedly  professional  courses? 

8  —  Since  the  purpose  of  education  is  to  develop  power,  should 

state  institutions  arrange  to  recognize  and  to  guide  the  develop- 
ment of  power  away  from  the  institution  through  supervised 
in  absentia  work,  reading,  travel,  writing,  and  participation  in 
pubHc  service  or  other  field  work? 

9  —  Is  a  searching  cooperative  study  needed  of  subjects  taught  in 

universities,  colleges,  high  schools  and  elementary  schools,  and 
of  methods  employed  in  teaching,  for  the  purpose  of  listing  all 
opportunities  for  eliminating  waste  of  energy  and  time? 

10  —  Are  uniform  state  standards  desirable  such  as  a  uniform  mini- 
mum course  of  study,  uniform  state  examinations  for  elemen- 
tary and  high  schools,  uniform  tests  for  promotion  and  gradua- 
tion at  the  county  and  state  normal  schools,  uniform  salary 
schedules  in  schools  supported  entirely  or  in  part  by  the  state, 
or  does  Ohio  wish  freedom  for  each  set  of  executives  and 
trustees  to  fit  courses  and  salaries  to  their  own  understanding 
of  local  needs  above  a  minimum  set  by  the  state  department 
of  public  instruction? 

II — Would  a  short  intensive  course  accomplish  more  than  several 
long  drawn  out  courses  taken  concurrently  —  one  hour,  or  two, 
or  three,  or  four  a  week  ?  Will  a  short  survey  course  give 
students  quite  as  much  about  the  sciences  and  literature  as  they 
now  retain  while  enabling  them  to  cover  several  more  fields  ? 

12  —  Has  the  time  come  to  distinguish  between  courses  where  the 

student  is  a  mere  auditor  exposing  himself  to  inspiration  and 
information,  and  other  courses  where  the  student  studies,  and 
still  other  courses  where  he  studies  and  works  for  honors? 

13  —  Are  there  subjects  wdiere  the  passing  mark  must  be  correct  and 

not  60  or  70%  ? 

14 — Is  it  possible  to  organize  so  that  each  student  will  go  as  fast 
as  he  can  without  being  impeded  or  confused  by  those  slower 
or  faster  than  himself? 

15  —  Can  learning  by  doing  and  "projects"  profitably  displace  a  large 
part  of  the  present  lecture  and  text  book  work  ? 


490  REPORT    OF    JOINT    LKGISLATIVE    COMMITTEE 

i6  —  Are  there  many  subjects  that  can  best  be  learned  and  many 
powers  than  can  best  be  developed  by  serving  the  state  while 
learning  and  developing,  for  example,  by  making  community 
surveys  and  by  otherv/ise  helping  out  state  departments? 

With  regard  to  each  of  these  questions  there  is  a  difference  of 
opinion.  It  is  impossible  to  secure  enough  information  and  enough  dis- 
cussion to  answer  these  questions  in  time  for  action  by  the  next  legisla- 
ture. 

Many  of  them  can  never  be  answered  until  experiments  hc^^e  been 
made.  For  example,  leading  educators  insist  that  it  has  never  yet  been 
possible  for  a  normal  college  to  carry  on  side  by  side  work  headed  toward 
teaching  and  work  headed  toward  other  professions  without  seriously 
detracting  from  the  interest  which  students  and  teachers  alike  take  in 
preparation  for  teaching.  Miami  University,  on  the  other  hand,  believes 
that  its  success  in  drawing  more  students  to  its  normal  college  than 
Bowling  Green  and  Kent  combined  is  partly,  perhaps  chiefly,  due  to  the 
presence  at  Miami  of  students  preparing  for  other  professions.  Pros- 
pective teachers,  it  is  said,  feel  that  they  will  have  a  better  time  and  do 
have  a  better  time  during  their  college  course  where  other  subjects  than 
"teaching"  are  being  taught,  than  they  could  have  if  there  were  only  pros- 
pective teachers  and  chiefly  women  at  that.  To  reconcile  the  two  points 
of  view,  discussion  and  re-discussion  and  experimentation  are  needed. 

Again,  with  regard  to  paying  normal  students  while  in  training 
sharp  differences  exist.  The  president  of  Kent  Normal  College  feels 
certain  that  in  no  other  way  will  it  be  possible  to  recruit  enough 
teachers.  He  quotes  Akron's  experience  where  for  $50  such  as 
Akron  factories  pay  for  apprentices  the  normal  schools  have  their 
pick  of  ablest  students  instead  of  taking  the  leavings.  He  believes 
that  expending  $300,000  a  year  in  Kent  in  paying  teachers  in  training 
would  be  well  invested.  Yet  at  the  meeting  of  Ohio  educators  dur- 
ing N.  E.  A.  week  in  Cleveland  the  majority  judgment  seemed  to  be 
that  starting  out  to  pay  teachers  to  prepare  for  teaching  would  ac- 
centuate present  objections  to  teaching,  that  it  is  on  a  part  charity 
basis  and  unable  to  compete  with  other  vocations  in  attracting  ablest 
men  and  women.  Those  who  held  this  view  insisted  that  it  was 
far  more  important  to  pay  teachers  after  they  begin  to  teach  than 
to  pay  them  while  they  are  preparing  to  teach.  These  two  conflicting 
views  cannot  be  settled  before  next  January.  No  one  is  justified 
in  holding  either  view  dogmatically.  Study,  discussion  and  experi- 
mentation are  needed.  In  another  section  an  experiment  is  recom- 
mended with  the  pay-while-leaming  plan  and  the  bonus-when-teach- 
ing plan. 

A  similar  conflict  of  views  exists  with  regard  to  the  third  question, 
whether  the  present  character  and  quantity  of  professional   training  is 


ON   ADMINISTRATIVE    REORGANIZATION  49I 

elevating  the  standards  of  teaching  or  is  rather  lowering  the  standard  by 
discouraging  and  driving  away  best  abilities.  Private  colleges  have  in- 
sisted to  your  committee  that  the  requirement  of  thirty  hours  professional 
work  includes  repetition  and  prevents  giving  other  work  that  is  more 
valuable.  State  colleges  of  education  insist  that  more  rather  than  less 
professional  work  should  be  required. 

There  must  be  a  wide-spread  disbelief  in  professional  courses  before 
a  great  literary  journal  will  print  statements  like  these: 

"Operations  in  normal  schools  or  teachers'  colleges  will 
not  change  the  species  to  which  a  person  belongs.  And  the 
grave  and  overshadowing  consideration  about  a  teacher  is 
whether  he  or  she  belongs  to  the  teaching  species,  or  is  only 
trying  to  imitate  the  habits  of  that  species  and  thereby  draw  a 
salary.  .  .  .  The  great  thing  about  a  teacher  of  youth  is  not  at 
all  how  much  he  knows  of  the  science  of  education,  the  laws  of 
learning,  the  administration  of  a  school,  or  of  the  particular 
subject  which  he  teaches.  The  important  thing  is  his  personal 
radiative  power  as  an  illuminant  along  the  highways  which  his 
pupils  have  to  travel.  One  could  weep,  and  one  must  weep,  to 
observe  how,  in  place  of  this,  something  manufactured  is  sub- 
stituted." 

When  a  magazine  that  exerts  great  influence  upon  public  thought 
makes  charges  against  professional  schools  Ohio  professional  schools  for 
teachers  should  either  have  evidence  to  disprove  the  charges  or  else 
modify  their  requirement.  They  are  not  organized  now  to  secure  or  to 
circulate  information. 

This  issue  cannot  be  settled  before  next  January.  No  one  man's  and 
no  one  group's  judgment  will  be  accepted  as  final.  The  way  to  settle  this 
question  is  .to  study  it,  analyze  these  professional  courses,  observe  the  way 
they  are  taught  in  the  schools,  observe  their  application  by  teachers  after- 
ward and  discuss  the  significance  of  this  information. 

Controversial  in  another  way  is  the  question  of  state  support  for 
municipal  universities.  The  danger  here  is  not  so  much  that  the  state 
will  find  itself  over  night  shouldered  with  these  institutions  as  that  the 
cities  now  supporting  them  will  over  night  decide  to  stop  supporting  them. 
Fortunately  recent  experience  does  not  justify  such  fear.  On  the  con- 
trary, these  municipalities  are, voting  more  and  more  funds  this  year  and 
are  apparently  becoming  more  and  more  proud  of  their  home  universities. 

In  spite  of  this  current  tendency,  however,  it  is  difficult  to  believe 
that  with  potential  public  school  revenues  raised  to  ten  or  twelve  or  more 
mills  in  every  Ohio  municipality,  and  with  other  costs  of  government 
mounting,  Ohio  can  reasonably  count  upon  the  willingness  of  Cincinnati, 
Akron  and  Toledo  to  keep  up  great  home  universities  and  at  the  same 
time  share  in  proportion  to  their  property  values  in  the  cost  of  state 


492  REPORT    OF    JOINT   LEGISLATIVE    COMMITTEE 

universities,  to  go  on  maintaining  their  own  colleges  for  teachers  and 
still  contribute  to  the  state's  colleges  for  teachers  just  as  if  the  state  were 
preparing  teachers  for  them.  It  is  a  question  which  Ohio  will  do  well  to 
begin  studying  now  before  there  is  any  open  public  issue. 

For  the  same  reason  cities  like  Dayton,  Lima  and  Youngstown  that 
are  now  maintaining  one  ye^r  city  normal  schools  cannot  reasonably  be 
counted  upon  to  support  the  much  needed  development  of  county  and 
state  normal  schools,  and  at  the  same  time  to  carry  alone  the  burden  of 
home  town  normals. 

The  much  needed  separation  of  junior  and  senior  colleges  at  Ohio 
state  university  can  make  little  headway  unless  changes  in  course  of 
study  are  agreed  upon  which  will  not  necessitate  maintaining  freshmen 
and  sophomore  work  at  Columbus  as  preparation  for  dentistry,  medicine, 
law,  agricultural  engineering,  veterinary  medicine,  etc.  It  may  be  that 
Ohio  cannot  do  full  justice  to  its  students  unless  it  gives  up  some  tradi- 
tional subjects.  It  may  be  that  the  list  of  pre-requisite  courses  has  in  it 
a  number  of  courses  that  ought  to  be  eliminated,  for  example,  that  a 
foreign  language  course  which  does  not  enable  the  student  to  speak  or 
write  or  read  in  that  language  is  not  indispensable  to  any  professional 
course. 

To  suggest  that  any  particular  course  in  a  college  or  university  is  not 
needed  at  the  point  where  it  is  now  offered  is  worse  than  lese  majeste  — 
it  is  rankest  bolshevism.  There  exists  no  authority  whose  word  on  this 
subject  can  be  considered  final.  Argument  will  not  settle  it.  Majority 
voting  will  not  settle  it.  It  can  be  settled  only  by  a  series  of  conferences 
following  studies  that  Ohio  ought  to  have  made  by  its  university  and 
college  faculties  and  state  departments. 

With  regard  to  extension  courses  or  extra-mural  courses  taken  away 
from  the  university  or  college,  the  challenge  of  present  theory  and  prac- 
tice promises  much  profit.  Hundreds,  perhaps  thousands,  of  those  who 
are  overcrowding  Ohio  state  university  are  there  not  because  they  prefer 
to  do  their  growing  there,  but  because  they  cannot  get  recognition  for 
growing  unless  they  spend  their  time  there.  Millions  of  dollars  in  capital 
invested  in  l)uildings,  hundreds  of  thousands  of  dollars  annual  income 
devoted  to  salaries  and  facilities  for  university  work  of  high  grade  are 
mvolved  in  the  answer  to  this  question.  A  still  greater  issue  is  involved, 
namely,  should  a  great  democracy  democratically  organize  its  educational 
facilities  and  place  them  within  reach  of  practically  every  person  ambi- 
tious and  able  enough  to  use  those  facilities,  or  "aristocratically"  and 
"plutocratically"  concentrate  those  facilities  in  a  few  cities  away  from 
chances  to  earn  while  learning? 

To  some  it  seems  preposterous  that  a  school  superintendent  should 
have  to  stop  superintending  in  order  to  secure  academic  recognition  for 
ability  to  superintend.  Hundreds  of  Ohio's  ablest  teachers  and  super- 
visors drop  their  work  for  Ohio's  children  and  stop  even  thinking  about 


ON   ADMINISTRATIVE    REORGANIZATION  493 

that  work,  give  up  their  learning-,  and  go  to  distant  schools  inside  or 
outside  Ohio  to  listen  to  talks  about  their  work  by  teachers  who  perhaps 
have  never  themselves  done  such  work. 

Again  the  engineering  college  of  Ohio  state  university  has  not  yet 
developed  the  in-and-out  or  cooperative  plan  which  has  worked  so  suc- 
cessfully at  the  University  of  Cincinnati  where  students  learn  one  week 
in  factory  or  shop,  and  attend  engineering  courses  the  next  week,  and 
in  each  period  have  the  benefit  of  a  so-called  coordinator  who  sees  to  it 
that  while  working  they  apply  the  principles  they  learn  at  college  and 
while  studying  at  college  they  build  up  on  their  practical  experience. 
New  York  university  has  just  adopted  this  plan.  Ohio  state  has  in- 
vestigated but  has  not  yet  adopted.  It  will  remain  an  open  question  until 
trustees  and  other  faculties  study  and  discuss  its  principle  which  can  as 
readily  be  applied  to  commerce  and  journalism  or  political  science  and 
chemistry  as  to  engineering. 

Even  in  the  arts  course  there  is  an  analagous  situation.  Some  edu- 
cators call  it  topsy-turvy  reasoning  that  puts  a  higher  value  on  a  60% 
mark  gained  in  a  lecture  course  with  thirty  other  students  than  on  home 
reading  and  thinking  upon  the  same  subject  with  ability  to  pass  the  same 
test  vv'ith  a  mark  of  80  or  .90%.  Conditions  have  so  changed  since  clois- 
ter colleges  were  first  organized  and  even  since  modern  professional 
schools  were  first  organized  that  great  states  must  soon  arrange  to  take 
the  college  and  university  to  the  student  where  he  is  earning  his  living 
and  stop  requiring  the  student  to  stop  his  earning,  to  leave  home,  and  to 
live  in  an  artificial  overcrowded  atmosphere  in  order  to  get  what  his 
own  state  will  recognize  as  education. 

As  the  Ohio  service  spot  maps  show  the  register  at  each  state  uni- 
versity and  college  is  largely  local : 

1  —  Of  Ohio  residents  registered  in  the  autumn  of  1919  105  or 

44%  of  240  at  Bowling  Green  normal  college  came  from 
that  city  and  Wood  County  and  184  or  72%  from  home  and 
contiguous  counties. 

2  —  Of  Ohio  residents  registered  m  the  autumn  of  1919  27  or 

13%  of  209  at  Kent  normal  college  came  from  Portage 
County  and  91  or  43%  from  the  home  and  five  contiguous 
counties. 

3 —  Of  Ohio  students  registered  in  the  autumn  of  1919  172  or 
20%  of  895  at  Miami  university  came  from  Oxford  and 
Butler  counties  and  431  or  about  50%  from  home  and  from 
contiguous  counties. 

^_0f  Ohio  resident?  registered  in  the  autumn  of  1919  299  or 
31%  of  960  at  Ohio  university  came  from  Athens  city  and 
county  and  404  or  43%o  from  home  and  six  contiguous 
counties. 


494  REPORT    OF    JOINT    LECilSLATIVE    COMMITTEE 

5  —  Of  Ohio  residents  registered  in  the  autumn  of  1919  2067  or 
36%  of  6042  at  Ohio  state  university  registered  from 
Columbus  and  P>ankHn  county,  and  2442  or  40%  from 
home  and  six  contiguous  counties. 

In  other  words  the  reason  why  ten  thousand  other  Ohioans  are  not 
attending  state  universities  is  that  the  universities  are  too  far  away  and 
not  tliat  these  students  lack  ambition  or  ability. 

To  suggest  credit  for  correspondence  courses,  credit  for  extra- 
mural courses  given  in  home  towns,  credit  for  individual  study 
under  university  supervision  seems  to  many  to  be  almost  blasphemy. 
It  is  impossible  to  harmonize  conflicting  views  before  the  next  legis- 
lature. It  is  not  impossible  to  start  a  study  v/hich  will  eventually 
lead  to  forward  steps  of  great  value  to  Ohio. 


tenltrf:  of  voluntary  boards 

It  is  reccmmended  that  all  statutes  relating  to  the  tenure  of  un- 
i)ai(l  boards  be  so  amended  that  a  board  membfer  may  not  succeed  himself. 
It  is  not  suggested  that  one  person  be  limited  to  one  term,  provided  that 
after  a  lapse  of  a  term  a  governor  or  other  appointing  power  has  reason 
to  requisition  again  the  services  of  a  former  member. 

The  rear.on  for  this  suggestion  is  that  the  state  of  Ohio  has  adopted 
for  the  most  part  the  theor}'  that  duties  of  administration  should  be 
given  only  to  full  time,  paid,  and  so  far  as  possible,  previously  trained 
and  skilled  administrators ;  and  that  voluntary  boards  and  commissions 
shall  be  used  for  inquiry,  recommendation,  criticism  and  moral  support 
bnt  not  for  administration. 

There  is  a  reason  for  the  distinction  and  that  reason  goes  back  to 
decades  and  generations  of  experience  with  impaid  boards.  At  the  same 
time,  the  concentration  of  administrative  responsibility  upon  paid  ex- 
ecutives, a  very  small  number  or  one  for  each  main  service,  makes  it 
indispensable  that  un])aid,  \'oluntary  interest  be  secured  to  check  the 
tendency  of  officialdom  to  interest  itself  in  the  mechanics  rather  than 
Uic  humanities  of  management. 

The  pnri)0se  of  the  voluntary  board  being  to  sec  what  is  needed  or 
desirable  that  is  not  yet  being  done,  it  is  imj)ortant  thai  at  no  point  it 
shall  have  a  self-interest  in  mistakes  of  management  that  will  keep  it  from 
wanting  to  explain  unmet  needs  to  the  public.  It  is  also  important  that  it 
shall  not  have  a  ])ersonal  reason  for  wishing  to  shield  executive  officers. 

To  free  voluntary  Ijoards  from  temptation  to  conceal  their  own  mis- 
takes of  management,  it  is  suggested  in  these  re])orts  that  all  administra- 
tive duties  be  transferred  to  administrative  offices.    For  example,  that  the 


ON    ADMINISTRATIVE    REORGANIZATION  495 

division  of  child  welfare  and  the  support  bureau  be  transferred  from  the 
board  of  charities  to  the  director  of  welfare  administration. 

To  free  voluntary  boards  from  the  temptation  to  become  more  in- 
terested in  institutions  than  in  needs  that  are  not  being  met  by  those 
institutions,  or  to  become  more  sensitive  to  their  own  past  records  than 
to  opportunity  for  making  new  records,  or  to  become  dull  to  needs  be- 
cause of  familiarity  or  the  habit  of  not  noticing  them,  it  is  suggested  that 
no  trustee  be  permitted  to  succeed  himself. 

In  a  few  instances,  by  no  means  as  frequent  as  many  will  think, 
the  state  will  lose  at  a  critical  time  the  official  interest  on  some  board 
of  a  particularly  valuable  board  member.  As  an  offset  to  this  possible 
loss  are  the  following  probabihties  :  Those  same  constructive  board  mem- 
bers will  attempt  to  do  far  more  in  their  limited  term  if  they  know  they 
are  not  to  succeed  themselves;  many  other  members  who  keep  procras- 
tinating with  the  thought  that  tomorrow  or  the  next  day  they  will  do 
vv^hat  the  governor  hoped  they  would  do  on  the  board  will  speed  up  in 
order  not  to  leave  a  record  of  inactivity ;  governors  will  be  more  careful 
to  select  men  and  women  who  will  use  their  single  term  to  the  state's 
advantage;  there  will  be  fewer  instances  where  small  groups  of  voluntary 
trustees  assume  an  attitude  of  proprietorship,  even  more  autocratic  than 
many  elective  and  appointive  officers  assume  who  consider  the  state  serv- 
ice a  private  preserve ;  and  while  now^  and  then  the  state  will  lose  the 
services  of  some  trustee  willing  to  give  a  lifetime  to  building  up  some 
institution,  it  will  gain  freedom  from  being  patronized  by  individuals 
who  forget  that  although  unpaid  and  although  trustees  they  are  neverthe- 
less servants  of  the  public. 

This  recognition  applies  immediately  to  the  board  of  charities,  the 
recommended  board  of  education,  the  board  of  the  two  state  normal 
schools  if  they  are  continued,  the  trustees  of  the  soldiers'  and  sailors 
orphans'  home  ,if  this  is  not  placed  under  the  director  of  administration 
as  recommended,  and  the  three  boards  of  the  three  universities. 

To  the  relatively  few  in  the  state  who  have  given  thought  to  the 
actual  management  of  the  universities,  the  question  will  arise  as  to 
whether  the  tradition  of  long  tenure  for  university  trustees  should  be 
broken.  At  the  Ohio  university  trustees  are  appointed  for  life,  and  re- 
main trustees  for  life  whether  they  ever  go  to  a  meeting  or  not.  At 
Miami  university  and  Ohio  state  university,  the  law  does  not  require 
life  terms  but  tradition  prefers  re-appointment.  While  governors  feel 
free  to  release  a  trustee  from  service  the  presumption  stands  in  favor 
of  continuation.  In  his  own  mind,  if  not  for  explanation  to  the  public, 
a  governor  must  have  some  special  reason  for  failing  to  re-appoint  a  uni- 
versity trustee.  It  is  here  suggested  that  on  all  state  boards  the  presump- 
tion should  be  in  favor  of  not  continuing  a  trustee  unless  proof  of  ad- 
vantage to  the  corporation  served  exists.    To  thus  limit  the  term  frees  the 


40  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

executive  from  embarrassment,  frees  the  state  from'  tradition  and  fosters 
conditions  where  every  broom  will  be  a  new  broom  so  long  as  it  is  used. 

This  change  will  not  aftect  the  continuity  of  a  board,  nor  interfere 
with  its  having  a  continuing  memory  of  its  problems  and  acts.  If  the 
law  provides  that  one  trustee  shall  go  out  each  year  it  will  insure  a  seven 
year  or  five  year  memory  in  each  board,  according  to  the  size  of  the 
board  and  a  memory  span  of  thirteen  or  nine  years. 

It  is  recommended  that  the  laws  pertaining  to  all  boards  of  trustees 
be  changed  so  that  no  board  shall  consist  of  more  than  seven  members, 
that  the  term  of  each  be  seven  years,  that  only  one  retire  in  a  year,  and 
that  no  trustee  may  succeed  himself. 


NEED  FOR  ROTARY  FUNDS 

It  is  recommended  that  the  legislature  definitely  recognize  the  dis- 
tinction between  capital  and  operation  expenses  by  establishing  rotary 
funds  for  state  institutions. 

It  is  further  recommended  that  the  practice  be  discontinued  of 
letiuiring  return  from  sales  that  niiglil  appropriately  be  used  for  in- 
vestment to  be  turned  into  the  state  treasury  and  that  the  present 
embargo  msisted  upon  by  the  auditor  of  state  as  to  trading  among 
institutions  be  lifted. 

Institutional  managers  have  with  almost  one  voice  protested  that 
the  present  practice  instead  of  putting  a  premium  upon  foresight  and 
shrewd  management  puts  a  premium  upon  wastefulness  and  indif- 
ference. 

If  a  hospital  for  the  insane  cannot  use  its  own  good  luck  or  good 
husbandry  on  the  farm  for  the  improvement  of  its  own  farm,  it  loses 
interest  in  making  such  improvements.  Such  is  the  contention,  such  is  the 
fact,  and  such  is  human  nature  everywhere. 

If  one  state  farm  cannot  trade  an  animal  that  it  does  not  need 
for  some  other  state  farm's  unnecessary  animal,  and  if  it  can  do  nothing 
with  an  unnecessary  animal  to  its  own  advantage,  it  is  at  least  tempted 
not  to  worry  about  the  state's  interest  in  that  animal. 

Financial  control  is  only  financial  chloroforming  if  the  result  of  it 
k  to  discourage  far-sightedness  and  economy.  It  is  easy  and  entirely 
.safe  to  control  finances  of  state  institutions  by  accounting  methods 
while  still  leaving  an  opportunity  to  keep  turning  over  and  over  their 
capital  to  the  state's  advantage. 

Many  other  legislatures  have  dclinitclv  recognized  the  difference 
between  expenses  and  investment  by  establishing  what  they  call  rotary 
funds.  Examples  are  furnished  in  the  following  statement  from  the 
department  of  animal  husbandry  in  the  college  of  agriculture,  Ohio 
state   university,    one    dealing   with    purchases    and    sales    of   live    stock 


ON    ADMINISTRATIVE    REORGANIZATION  497 

and  the  other  with  exchanges.  Numerable  other  ihustrations  might 
be  furnished  from  the  institutions  under  the  board  of  administration. 
The  principle  is  so  clearly  stated  by  Professor  C.  S.  Plumb  that  there 
seems  no  answer  but  agreement.  The  end  which  the  auditor  of  state 
seeks  by  prohibiting  exchange  can  be  accomplished  by  making, 
as  he  can,  an  audit  of  results  which  will  stimulate  and  not  paralyze 
university  initiative : 

'Tn  order  to  properly  supplement  certain  class  room  lessons,  relat- 
ing to  farm  animals,  such  as  breeding,  feeding,  the  relationship  of 
form  of  function,  management,  the  breeds,  etc.,  it  is  vitally  necessary 
that  the  college  of  agriculture  maintain  herds  of  improved  live  stock. 
Such  herds  are  maintained  in  all  our  agricultural  colleges.  At  this 
university  we  usually  keep  about  25  head  of  horses,  100  of  cattle,  125 
sheep  and  100  or  more  hogs.  To  properly  care  for  these  tnimals,  and 
to  improve  the  work  in  breeding, ,  necessitates  the  expenditure  of  a 
considerable  sum  of  money  from  year  to  year.  Funds  should  be  avail- 
able that  will  permit  the  \iniversity  to  purchase  such  animals  as  may 
be  desirable  or  necessary  to  further  the  work.     Such,,  however,  is  not 

the  case.  r  1,  o^, 

"The  conditions  wdiich  have  existed  for  years,  are  as  tollows :  ilie 
legislature  has  usually  appropriated  about  $3,500  a  year  for  the  uni- 
versity for  the  purchase  of  live  stock.  The  past  two  years  the  sum 
has  been  $3,800.  This  sum  has  not  been  specifically  for  the  animal 
husbandry  department,  but  for  the  university  as  a  whole.  This  being 
so,  some  of  the  money  appropriated  each  year  has  been  used  for 
purchasing  work  horses  for  the  farm.  This  year  a  number  of  horses 
have  been  bought,  thus  reducing  the  fund  for  purchase  of  animals 
for  the  animal  husbandry  department  to  less  than  $3,000.  Persons 
at  all  familiar  with  the  cost  of  high  class  horses  or  cattle,  or  even 
sheep  and  swine,  realize  how  small  a  fund  there  is  with  which  the  uni- 
versity has  to  work.  During  the  year  1919-1920,  large  numbers  of 
cattle  and  swine  have  sold  for  averages  of  $1,000  or  more.  In  1917 
the  university  needed  a  Percheron  stallion,  and  we  purchased  a  horse 
that  was  of  outstanding  merit,  but  he  cost  $2,500,  leaving  but  $1,000 
for  all  other  live  stock  expenditures  during  the  year. 

"In  many  colleges,  the  department  is  allowed  the  use  of  funds 
derived  from  the  sale  of  live  stock.  In  Ohio  this  is  not  the  case,  and 
the  university  is  required  to  turn  into  the  state  treasury  all  moneys 
from  live  stock  sales.  It  is  immaterial  how  much  money  is  derived 
from  sales.  It  returns  no  benefit  to  the  university.  Under  present 
conditions,  w^ere  our  sales  $100,000  in  a  year,  we  should  still  appar- 
ently be  allowed  but  the  small  sum  now  available.  If,  however,  this 
money,  as  a  rotary  fund,  were  available  to  the  department  for  equip- 
ment and  supplies,  it  would  enable  us  to  purchase  much  necessary 
livestock  and  place  our  equipment  on  a  better  basis  for  educational 
work.  It  has  always  been  very  uncertain  whether  we  should  receive 
any  state  appropriation  at  all,  for  live  stock,,  so  that  if  we  had  a  rotary 
fund,  it  would  give  us  a  degree  of  independence  in  the  way  of  animal 
appropriations  that  we  do  not  have  now. 

"The  department  is  further  handicapped  in  another  direction.     The 
auditor  of   state  has  expressed  the  opinion   that  no  exchanges  of   live 
32 


498  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

stock  should  be  allowed,  between  the  university  and  other  proprietors. 
Therefore,  while  'in  the  past  this  department  has  done  some  trading, 
and  to  university  advantage,  at  present  the  practice  is  discontinued. 
Under  these  conditions  the  university  is  denied  the  right  to  follow  a 
universal  practice  among  stockmen,  and  which  may  be  followed  to 
the  advantage  of  both  parties.  In  the  purchase  of  the  Percheron 
stallion  to  which  reference  has  already  been  made,  the  owner  of  the 
horse  agreed  to  take  part  of  his  pay  in  live  stock.  He  visited  the  uni- 
versity, and  expressed  a  willingness  to  take  certain  animals  that  we  de- 
sired to  dispose  of,  at  a  fair  compensation  in  trade.  In  view  of  our 
shortage  of  money,  this  trade  would  have  been  very  advantageous  to 
the  university,  but  the  exchange  was  jirohibited  and  fell  through.  Per- 
sonally, I  fail  to  see  any  logical  reasons  for  denying  the  department  the 
privilege  of  making  exchanges,  which  it  must  be  assumed  are  in  the  in- 
terests of  the  state.  If  the  persons  in  charge  of  the  live  stock  are 
qualified,  then  it  seems  to  me  they  should  be  permitted  to  use  their 
judgment  in  the  methods  of  securing  or  disposing  of  live  stock,  so 
long  at  least  as  justified  in  the  light  of  common  custom. 

"I  am  sure  that  it  is  the  opinion  of  the  men  in  the  department  that 
with  reasonable  funds  at  the  disposal  of  the  university,  and  a  properly 
safeguarded  freedom  of  action,  we  should  be  able  to  place  before  our 
students  inspiring  lessen?  in  ]i\e  stock  husbandry,  that  necessarily  have 
to  do  with  ample  instructional  material  of  the  better  class." 

A  rhetorical  anti-climax  that  hcl]~)s  drive  tb.e  lesson  home  is  added 
from  the  state  hospital:  "We  ha\e  a  pedigreed  bull  calf  that  we 
mignt  sfc^ll  for  $75.  Our  stock  man  said  this  morning  that  if  we  sell  it 
we  ge<  no  benefit  from  it  for  the  iuoney  goes  to  the  state.  He  sug- 
gested, therefore,  that  we  cut  it  up  for  meat.''  The  rotary  fund  prin- 
ciple is  sound  and  should  be  generally  adopte;d  at  once. 


ONE  HEAD  FOR  FOUR  IN  ADMINISTERING 
WELFARE  INSTITUTIONS 

By  WILLIAM  H.  ALLEN 


With  regard  to  the  board  of  administration  which  is  responsible  for 
expressing  Ohio's  best  thought  in  managing  twenty-three  different  insti- 
tutions having  an  aggregate  population  of  25,000  and  spending  $12,000,- 
000  each  biennium,  it  is  recommended: 

I — That  the  board  of  four  members  be  abolished. 

2  —  That  a  director  of  welfare  administration  be  created  with  all 
the  powers  now  possessed  by  the  board  of  administration. 

3-^ That  to  the  director. of  welfare  administration  there  be  trans- 
ferred the  administrative  responsibilities  now  carried  by  the 
Ohio  commission  for  the  blind,  the  support  bureau  and  chil- 
dren's welfare  work  of  the  board  oi  state  charities,  and  the 
board  of  trustees  of  the  soldiers'  and  sailors'  orphans'  home  at 
Xenia. 

If  adopted,  these  recommendations  will  put  into  one  executive's 
hands  the  administrative  duties  now  carried  by  sixteen  board  members, 
make  for  better  administration  of  all  services  involved,  and  release  sal- 
aries, expense  money  and  energies  that  will  elsewhere  accomplish  vastly 
more  for  the  state  than  is  now  being  accomplished  by  the  present  organ- 
izations. 

The  reason  for  transferring  the  administrative  services  of  the  com- 
mission for  the  blind  to  the  department  of  administration  is  that  this 
commission  has  now  become  a  large  business  enterprise.  Its  purchases, 
its  sales,  its  patrons,  its  homes  to  be  visited  and  blind  persons  to  be  taught 
at  home,  and  its  traveling  expenses,  have  exceeded  the  point  where  a 
voluntary  commission  can  give  more  perfunctory  attention  to  its  work, 
costs,  and  results.  The  time  of  a  capable  executive  should  be  free  for 
extending  and  improving  the  work  without  the  necessity  of  trying  to 
give  a  widely  scattered,  seldom-meeting  board  enough  knowledge  about 
the  work  to  justify  it  in  voting  authorization.  The  voluntary  interest 
of  persons  devoted  to  furthering  the  interests  of  the  blind  can  be  util- 
ized more  effectually  in  educational  work  that  does  not  involve  admin- 
istrative duties. 

The  reason  for  transferring  the  administrative  duties  now  being 
performed  by  the  state  board  of  charities  is  three-fold :  they  belong  prop- 

499 


Days  Board  of  Administration  Members  did  aind  did  not  visit  18  Out 
of  Columbus  Institutions  —  Fiscal  Year,  1918-1919 


Blank  space   indicates  day  of  visit; 
*Indicates  day  of  no  visit  out  of  Columbus. 


IJr.   Riddle 


Jan 

Feb 

Mar 

Apr 

May 

Jime 

July 

Aug 

Sept 

Oct 

Not 

Dec 


Mr,  Guthery     Jan 

Feb 

Mar 

Apr 

May 

June 

July 

Axig 

Sept 

Oct 

Not 

Dec 

Mr.  Seiner t     Jan 

Feb 

Mar 

Apr 

May 

June 

July 

Aug 

Sept 

Oct 

Nov 

Dec 

Mr.   Creamer     Jan 

Feb 

Mar 

Apr 

May 

June 

July 

Aug 

Sept 

Oct 

Nov 

Dec 


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(500) 


ON   ADMINISTRATIVE    REORGANIZATION  $01 

erly  with  other  administrative  services  in  this  same  field  where  they  may 
receive  exacting  supervision ;  they  cannot  be  well  enough  done  by  any 
board  that  meets  infrequently;  and  they  divert  the  attention  and  energy 
of  board  members  from  duties  of  inspection,  criticism  and  recommenda- 
tion which  should  be  regarded  as  imperative,  but  which  actually  have 
lapsed  to  almost  negligible  consequence. 

The  reason  for  placing  the  soldiers'  and  sailors'  orphans'  home  in 
a  large  administrative  department  is  that  this  institution  for  over  six 
hundred  children  is  entitled  to  advantages  of  wholesale  purchasing,  sys- 
tematic repairs,  expert  advice  on  farming  and  gardening,  expert  promo- 
tion at  budget  time,  expert  executive  supervision  and  helpfulness  which 
a  voluntary  board  of  trustees  does  not  and  cannot  furnish.  The  objec- 
tion that  soldiers'  children  should  not  be  classified  with  the  unfortunates 
who  are  cared  for  by  the  administrative  department  seemed  strong 
enough  when  the  board  of  administration  was  established  to  prevent 
including  this  school  under  central  administration.  But  that  objection 
was  largely  the  result  of  misunderstanding.  No  disparagement  of  any 
class  is  involved  in  giving  it  heat  or  engineering  service  or  budgetary 
over-sight  or  executive  supervision  from  the  same  center  which  supplies 
other  different  constituencies.  The  friends  of  the  Xenia  home  surely 
do  not  want  less  for  the  children  at  this  school  than  the  utmost  expert 
direction  will  give.  Nor  can  they,  after  the  facts  are  explained,  be 
willing  to  deny  the  state  the  advantages  that  would  come  from  putting 
this  service  where  the  utmost  can  be  learned  from  it. 

The  reasons  for  substituting  a  single  director  for  four  members  as 
head  of  the  state's  administration  of  institutions  are  five : 

1  — The  work  of  a  judicial  character  that  called  for  board  action 

when  the  separate  institutional  boards  were  first  abolished  has 
now  been   accomplished  ; 

2  —  Present  work  calls   for  study,   decision,   action,   dispatch,   ef- 

ficiency, for  each  and  all  of  "which  one  head  is  everywhere 
better  than  four ; 

3  —  The  cost  of  obtaining  four  men  of  the  caliber  contemplated 

when  in  191 1  the  salaries  were  fixed  at  $5000  is  now  prohib- 
itive for  it  means  at  present  rates  from  $40,000  to  $60,000 
a  year  for  initial  salaries  in  this  one  office ; 

4  —  Far  more  work  can  be  secured  from  specialists  employed  for 

field  work  if  they  have  to  account  to  but  one  superior  instead 
of  four; 

5  —  One  person  able  to  decide  and  to  execute  will  have  a  continuing 

motive  to  study  causes  and  consider  and  propose  remedies 
where  a  board  of  four  has  found  it  impossible  in  nine  years  to 
adequately  utilize  in  this  way  either  the  expert  ability  on  its 
own  pay-roll  or  the  progressive  citizen  interest  and  institu- 
tional experience  of  Ohio  and  other  states. 


502  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

In  addition  to  or  in  explanation  of  the  foregoing  reasons  for  a  single 
director  instead  of  four  board  members,  the  following  facts  are  cited : 
In  the  last  fiscal  year  only  223  visits  were  paid  to  institutions  by  the  four 
board  members  or  respectively  63,  76,  52,  32  each.  See  the  accompany- 
ing chart  on  page  2  for  graphic  ilustration.  The  member  whose  assign- 
ment this  year  is  general  humanitarian  interest  and  finance  visited  last 
year  when  chairman  on  but  fifteen  days  when  not  accompanied  by  other 
members. 

This  chart  itself  shows  the  difficulty  of  having  four  heads  instead 
of  .one,  all  of  them  co-ordinate.  It  is  extremely  difficult,  as  experience 
has  shown  everywhere,  to  entice  men  into  the  field  if  there  is  an  excuse 
for  remaining  in  the  office.  It  is  difficult  enough  where  men  are  under 
instructions.  The  board  members  are  doubtless  surprised  that  they  are 
in  the  field  so  seldom.  The  total  —  223  visits  for  all  of  them  —  is  less 
than  a  full  working  year  of  one  person  after  due  allowance  for  vacation 
and  sickness.  Of  1000  minimum  working  days  to  which  the  state  was 
entitled,  223  were  spent  partly  in  the  field,  leaving  'j'j']  at  the  office.  And 
while  some  office  work  is  needed,  it  can  hardly  be  contended  that  it  is  in 
the  proportion  of  ']'j'f  to  223. 

If  we  add  together  the  days  spent  in  the  field  by  the  agriculturist 
member,  the  physician  member,  and  the  humanitarian  member,  we  have 
all  told  160  days  in  the  field,  or  36%  less  than  the  equivalent  of  one 
full  year  of  one  itinerant  specialist.  For  these  160  days  of  field  work 
and  the  office  supplement,  the  state  paid  $12,000.  At  the  value  of  money 
when  the  board  was  first  established,  it  would  have  been  $30,000  for  160 
days.  $4,000  for  76  field  days  by  the  agriculturist  member,  $4,000  for 
52  days  by  the  physician  member,  and  $4,000  for  32  days  by  the  humani- 
tarian member,  represents  a  salary  rate  vastly  exceeding  that  of  any 
other  state  officer  or  any  public  ofifiiccr  in  the  United  States,  except  the 
president. 

Not  one  of  the  eighteen  institutions  outside  CoUmibus  was  paid 
the  statutory  monthly  visit,  the  monthly  failures  to  comply  with  the  law 
running  as  high  as  ten  months  not  visited  out  of  twelve  monthly  visits 
due.  Even  the  state  reformatory  for  men  which  is  seriously  over- 
crowded and  presents  grave  problems  was  skipped  three  months.  The 
three  institutions  which  can  easily  be  visited  in  part  of  one  day  by  auto- 
mobile run  —  boys'  industrial  school  at  Lancaster,  girls'  industrial  school 
at  Hyatts,  and  the  women's  reformatory  at  Marysville  —  were  paid  yj 
visits,  or  almost  exactly  one-third  the  year's  total  visits  to  eighteen  insti- 
tutions, while  the  hospital  for  epileptics  at  Gallipolis,  the  Madison  home 
and  the  state  sanatorium  combined  had  only  14  visits. 

Nor  is  tliis  twelve-month  period  below  normal  in  amount  of  visiting 
done.  In  the  two  six-month  periods  —  Jan.  i  to  June  30,  1918,  and 
July  I  to  December  31,  1919  —  the  total  of  visits  was  43  fewer  than  in 
the  fiscal  year  July  i,  1918  through  June  30,  1919,  the  members  making 


ON   ADMINISTRATIVE    REORGANIZATION  503 

respectively  14,  13,  18  fewer  and  one  2  more  than  in  the  other  twelve 
months.  In  the  last  six  months  of  1919  only  one  of  eighteen  institutions 
—  the  new  prison  farm  —  was  visited  every  month  as  required  by  law. 
The  girls'  industrial  school,  which  was  much  in  need  of  attention,  was 
not  visited  in  July,  November,  and  December ;  the  Ohio  state  sanatorium 
was  not  visited  in  September,  November,  and  December;  the  hospital 
for  epileptics  was  skipped  four  of  six  months,  as  was  the  Lima  hospital 
for  the  criminal  insane ;  the  institution  for  feeble  minded  was  missed 
each  month. 

More  fundamental  reasons  still  for  substituting  one  executive  for 
four  coordinate  conferring  heads  have  to  do  with  the  larger  purposes 
for  which  Ohio  maintains  these  institutions : 

1  —  The  board  has  after  all  these  years  failed  to  provide  for  the 

same  systematic  study  of  its  human  problems  which  it  has 
given  to  problems  of  purchasing  and  of  controlHng  finances; 

2  —  Although  free  to  print  illuminating  reports  and  to  require  sci- 

entific analysis  of  its  results  and  lessons  it  has  failed  to  do 
both ; 

3  —  After  taking  the  statesmanlike  step  of  bringing  on  a  specialist 

in  mental  abnormalities  as  head  of  its  bureau  of  juvenile 
research  it  has  given  him  only  restricted  use  even  of  its  own 
laboratories,  has  failed  to  use  him  in  its  institutions  anfl  has 
•  actually  permitted  his  exclusion  from  the  boys'  industrial 
school ; 

4  —  It   has    failed  to   give   the   state   the   truths   needed   to   show 

whether  the  new  penitentiary  plans  are  an  unimaginative  orgy 
of  expense  and  misplanning  as  Mr.  Cummin  has  reported  to 
your  committee,  or  are  as  the  building  commission  maintains 
a  wise  expenditure  of  $10,000,000; 

5  —  It  has  failed  to  turn  the  searchlight  of  its  institutional  experi- 

ence upon  the  causes  of  crime  and  the  possibility  of  greatly 
developing  probation  work  in  counties  in  order  to  keep  men 
out  of  state  penal  institutions  ; 

6  —  It  has  failed  to  develop  leadership  of  state  thought  regarding 

the  vast  problems  entrusted  tO'  it. 

It  has  failed  in  these  services  not  because  it  did  not  want  to  help 
but  because  it  was  asked  to  do  what  boards  and  commissions  seldom 
do,  namely,  manage  and  administer  as  well  as  legislate.  It  has  been  no 
one  member's  duty  to  look  ahead  for  the  entire  many-sided  problem. 
Even  where  one  member  has  special  knowledge  he  must  defer  to  three 
others  who  lack  his  special  knowledge  but  who  are  compelled  to  go 
through  the  form  of  weighing  his  evidence  and  challenging  his  recom- 
mendations. With  such  diffusion  at  the  top  it  has  naturally  been  im- 
possible for  the  state  to  secure  from  trained  subordinates  the  service 


504  REPORT    OF   JOINT   LEGISLATIVE    COMMITTEE 

they  could  gladly  give  were  efficiency  and  initiative  fostered  and  com- 
pelled by  an  exacting  head  with  a  consistent  cumulative  policy. 

The  needs  of  the  girls'  industrial  school,  paid  79  visits  in  the  two 
last  calendar  years,  illustrate  limitations  that  are  inherent  in  manage- 
ment by  several  heads  where  no  one  person  has  the  duty  or  the  power 
to  make  decisions  and  compel  action. 

1  —  This  school  with  about  450  girls  in  daily  residence  has  never 

had  soft  water,  has  had  no  running  hot  water  for  bathing,  has 
until  1920  failed  to  filter  the  brackish  water  used  for  bathing, 
and  even  now  is  continuing  to  use  water  so  hard  that  it  is 
unsuited  for  bath  or  laundry  use; 

2  —  More   land   is    needed    for   a    dairy  —  no   cows   whatever   are 

milked  now,  although  a  dairy  would  ofifer  excellent  educa- 
tional  opportunities ; 

3  —  A  proper  filing  system  is  lacking ; 

4  —  Adequate  dental  attention  has  never  been  given.     Two  seniors 

from  Ohio  State  university  come  two  months  after  the  holidays 
for  practice  work  but  between  February  or  March  and  the 
next  January  all  girls  received  are  without  dental  examination 
unless  some  special  urgency  requires  attention  by  a  local 
dentist ; 

5  —  Thorough   physical   examination  has  not  been  given  .for   ear 

defects,  adenoids,  enlarged  tonsils  and  other  removable  de- 
fects, although  such  examination  is  among  the  minimum  rights 
of  all  state  charges,  particularly  children  of  school  age ; 

6  —  Salaries  adequate  to  secure  persons  properly  equipped  for  this 

work  have  neither  been  allowed  nor  sought; 

7  —  Fire   drills  were  stopped  some  time  ago  on  the  ground  that 

they  suggested  setting  fire  to  buildings.  On  the  day  of  our  visit 
one  hose  was  examined  which  could  not  quickly  have  been  run 
out  because  it  was  already  tangled.  Fire  protection  was  in- 
adequate, neither  buckets  of  water  nor  fire  extinguishers  being 
available ; 

8  —  No  girl  is  held  back  from  parole  because  she  is  illiterate  or 

near-illiterate ; 

9  —  No  state  certificates  are  held  by  the  teachers   in  the  school. 

Record  blanks  call  for  so  little  information  that  they  are  of 
little  use; 
10  —  The  parole  officer's  reports  are  vague,  practically  useless,  and 
largely  hearsay.  They  do  not  report  whether  the  girl  goes  to 
school,  or  if  she  goes  to  school  how  she  is  doing  at  school. 
They  do  take  time  to  report  fulsome  praise  of  the  school, 
credited  to  parole  girls  and  their  employers; 


ON    ADMINISTRATIVE    REORGANIZATION  S^S 

II  -While  each  girl  is  supposed  to  be  trained  three  months  in  the 
laundry,  three  in  the  kitchen,  and  three  in  dress-making,  they 
are  encouraged  whenever  they  show  special  adaptability  for 
ironing  or  baking  or  sewing  to  stay  where  their  tastes  and 
attitudes  are.  There  is  no  check  on  this  and  no  provision  for 
proper  sequence  of  assignments.  No  record  is  kept  of  the 
work  done  by  girls  in  the  various  departments.  Utterly  in- 
adequate use  is  made  of  God's  out-doors  for  play,  physical 
training,  and  for  valuable  training  in  gardening; 
i^_No  register  of  visitors  is  kept.  There  is  no  way  of  telling 
there  how  many  times  the  members  of  the  board  of  administra- 
tion or  agents  of  the  board  of  state  charities  have  visited  the 
institution.  It  was  insisted  that  nobody  from  the  board  of 
state  charities  had  been  there  for  nearly  three  years  until  the 
investigation  of  1919;  .       , 

13  — The  county  superintendent  never  visits  there  to  supervise  the 

teaching  or  help  the  teachers ;  •       ,     •> 

14 -No  cooperation  has  been  effected  with  the  educational  de- 
partment of  Ohio  Wesleyan  at  Delaware,  which  would  be  of 
much  help  and  which  would  undoubtedly  appreciate  the  use 
of  this  school  as  a  training  ground  for  practice  teachers ; 
I.  — The  assembly  room  is  used  "twice  on  Sunday  and  perhaps 
twice  a  fortnight",  whereas  it  should  be  used  every  school 
day  and  frequently  of  evenings ; 

16  — The  gymnasium  was  out  of  commission  at  the  time  of  our 

visit  and  has  no  equipment  except  for  basketball ; 

17  _  One  board  member  has  long  been  convinced  that  the  manage- 

ment was  incapable,  a  second  member  has  jumped  always  to 
its  defense,  the  two  other  members  have  remained  neutral ; 

18  — When  o-harges  by  the  state  board  of  charities  against  the  man- 

agement were  being  heard  by  the  board  of  administration 
the  chairman  withdrew  from  the  meeting  because  the  manage- 
ment's sponsor  on  the  board  used  such  unparliamentary  and 
truculent  language  toward  the  board  of  charities  agents ; 

19  — After  this  conference  the  management  was  instructed  to  in- 

stall adequate  records,  an  instruction  which  was  almost  mean- 
ingless because  the  management  did  not  know  what  constitutes 
adequate  records.  No  follow  up  was  employed  to  see  that 
the  orders  were  promptly  and  properly  complied  with  ; 

20  — Although  in  the  management's  presence  the  board  arranged 

for  a  joint  visit  to  the  girls'  industrial  school  by  its  own  repre- 
sentatives and  agents  of  the  board  of  charities  to  verify  one 
•  or  two  points  in  controversy,  the  chief  matron  absented  her- 
self and  left  the  desired  records  locked  up.  Yet  no  disciplin- 
ary step  was  taken  or  could  have  been  successfully  taken  re- 


506  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

garding-  this  insubordination,  because  of  the  division  within 
the  board ; 
21 — From  reports  by  the  state  department  of  public  instruction 
(upon  request)  and  the  children's  welfare  department  of  the 
board  of  charities,  based  upon  extended  field  examination,  it 
is  clear  that  the  school  has  all  these  years  lacked  the  right 
kind  of  educational  program,  right  methods,  and  right  person- 
nel ;  there  has  been  no  school  principal ;  no  plan  for  insuring 
that  girls  were  placed  in  proper  grades ;  no  adequate  super- 
vision; no  plan  for  supervision;  no  uniform  blanks  for  re- 
porting children's  needs ;  no  teacher  of  physical  training  and 
no  domestic  science  teacher  until  autumn,  1919;  no  art  teacher; 
no  special  instruction  for  girls  who  are  retarded  because  of 
either  mental  deficiencies  or  lack  of  previous  opportunity;  in- 
adequate library ;  not  enough  large  enough  modern  maps  and 
too  little  use  of  those  they  have ;  no  provision  in  the  individual 
cottages  for  proper  collection  of  books;  no  apparatus  or  ap- 
pliances for  teaching  science ;  no  piano  or  victrola  in  five  of 
the  cottages;  no  central  definite  merit  system  for  encouraging 
proper  demeanor  (Mr.  McNamara  being  resorted  to  for  use 
of  the  so-called  "paddle"  for  corporal  punishment)  ;  inade- 
quate recreation ;  insufficient  medical  examination  and  super- 
vision, with  failure  to  enforce  proper  segregation  of  girls 
with  venereal  diseases ;  no  resident  physician  for  several 
months; 

22  —  To  find  out  the  facts  about  one  girl  it  was  necessary  to  look 

in  eight  different  places,  not  to  mention  unfiled  documents  and 
communications  in  different  drawers  of  the  office  desk.  It  was 
the  practice  at  the  beginning  of  the  new  year  to  destroy  prac- 
tically all  the  correspondence  concerning  the  children  of  the 
past  year.  The  chaotic  condition  of  such  few  records  as  are 
kept  at  the  girls'  industrial  school  is  due  not  to  willful  viola- 
tion of  business  procedure  but  to  almost  complete  lack  of  com- 
prehension as  to  the  service  which  records  might  render; 

23  —  The  management  has  not  been  sent  to  see  progressive  insti- 

tutions covering  the  same  field  or  to  attend  national  confer- 
ences. Nor  has  the  board  seen  that  the  management  or  any 
other  agent  of  the  board  should  study  current  literature  dealing 
with  similar  industnal  schools  and  day  schools ; 

24  —  Each  report  by  the  auditor  of  state  has  shown  that  local  pur- 

chases and  expenditures  had  exceeded  the  total,  in  the 
second  period  of  a  little  less  than  a  year  and  a  half  by  $4216, 
150%,  without  including  telephone  service  and  milk  vouch- 
ered  through  as  emergency  items; 


ON   ADMINISTRATIVE    REORGANIZATION  507 

25  —  As   recently  as   November,   1919,  and  presumably  at  present, 

steaks  and  other  cuts  for  the  officers'  table  w^ere  being  charged 
at  the  rate  per  pound  paid  for  wholesale  carcasses,  that  is, 
at  13c  instead  of  36c  to  50c; 

26  —  The  management,  the  board  of  administration,  and  the  public 

are  without  the  necessary  information  for  learning  what  if 
any  causes  of  delinquency  are  removable,  what  if  anything 
churches  and  public  schools  might  be  doing  to  prevent  the  send- 
ing of  hundreds  of  girls  to  this  school  who  never  ought  to  be 
there  at  all ; 

27  —  The  bureau  of  juvenile  research  might  as  well   be  in  New 

Jersey  as  in  Columbus,  so  far  as  concerns  the  study  of  girls 
at  this  school,  except  for  the  few  who  are  sent  by  the  courts 
direct  to  the  bureau. 

At  the  time  of  our  visit  the  chief  matron  pointed  out  a 
girl  as  having  been  railroaded  to  this  school  for  an  entirely 
innocent  mishap  because  she  had  no  influential  friends, 
whereas  the  other  girl,  who  was  with  her  when  the  auto- 
mobile broke  down  and  occasioned  the  appearance  of  evil, 
was  dismissed  because  her  family  had  influence.  Taking  this 
official  statement  of  the  case  it  is  obviously  the  state's  duty  to 
remedy  such  an  injustice  the  minute  there  is  evidence  of  it 
and  to  investigate  every  allegation  of  injustice; 

28  —  Instead  of  search  for  usable  truths  there  is  almost  complete 

lack  of  it  and  the  actual  destruction  of  records  when  they 
reach  the  hoary  age  of  twelve  months  ; 

29  —  Of  both  the  girls'   industrial   school  and  the  boys'   industrial 

school  the  two  investigators  for  the  state  department  of  public 
instruction  reported  a  conclusion  which  the  board  of  adminis- 
tration has  failed  to  compass  in  its  thinking  and  planning; 
"We  have  become  embarrassed  with  the  bigness  and  complexity 
of  the  problems  which  the  two  schools  present  for  solution." 
Of  the  teachers,  the  state  department  of  public  instruction 
reported  that  they  lacked  adequate  training  and  THAT  while 
they  hold  elementary  certificates  it  is  doubtful  if  any  of  these 
certificates  are  now  in  force.  They  are  sufficiently  mature  and 
experienced.  They  are  sincere  and  devoted  to  their  work. 
They  are  certainly  kind  and  firm  and  have  a  good  influence  on 
the  characters  of  the"  girls." 
30  —  Initiative  and  individuality  among  girls  is  not  sufficiently 
studied  and  fostered  to  justify  such  a  school.  The  same  is 
true  of  the  boys'  industrial  school  at  Lancaster,  where  for 
hardly  a  minute  of  the  day  is  a  boy  free  from  compulsion  and 
supervision.  They  rise  to  order  and  in  squads.  They  march 
in  formation  to  breakfast.    They  go  to  the  washroom  in  forma- 


508  REPORT    OF    JOINT   LEGISLATIVE    COMMITTEE 

tion.  Twice  a  day  they  are  compelled  to  wait  in  silence  from 
ten  to  fifteen  minutes  while  the  details  are  being  changed.  Re- 
creational periods  are  supervised. 

Were  any  member  of  the  board  of  administration  clearly  respon- 
sible for  taking  remedial  steps  shown  to  be  necessary  by  the  girls' 
school's  experience,  records  would  not  be  destroyed  on  the  flimsy  pre- 
text that  this  safeguards  the  girl,  but  on  the  contrary  records  would  be 
carefully  studied  to  see  in  what  ways  if  at  all  Ohio  is  doing  less  than  it 
ought  for  those  youthful  charges. 

If  the  medical  member  were  a  full  time  medical  supervisor,  sub- 
ject to  civil  service  competition  and  to  orders  from  a  director  of  welfare 
administration,  he  would  see  a  physician  installed  within  twenty-four 
hours  from  the  notice  of  vacancy  and  not  leave  innocent  young  girls  in 
daily  contact  with  dangerous  cases  of  venereal  diseases.  Had  any  single 
member  of  this  board  been  undodgably  accountable  for  this  condition 
which  arose  in  May,  19 19,  at  the  girls'  industrial  school,  he  would  have 
found  intolerable  the  inaction  which  has  made  little  if  any  impressioa 
upon  the  four  members. 

Such  evidences  that  the  time  has  come  for  a  single-headed  direction 
of  these  multiple  important  services  are  not  incompatible  with  frank  ap- 
preciation of  admirable  services  rendered  by  the  board  of  administration 
during  its  nine  years.  The  auditor  of  state  when  summarizing  the  early 
advances  up  to  December,  1915,  wrote  that  the  change  from  separate 
boards  to  one  central  board  had  already  resulted  in  more  systematic  and 
economic  administration,  in  the  elimination  of  politics  in  the  conduct  of 
the  various  institutions,  and  in  many  cases  in  improvements  worthy  of 
commendation.  At  that  time  fourteen  criticisms,  some  serious,  some 
slight,  were  made  with  respect  to  methods  at  the  board's  headquarters; 
seven  with  respect  to  fiscal  management;  and  seventeen  with  respect 
to  institutional  management,  —  a  total  of  thirty-eight  discrepancies  of 
records,  defects  of  management  or  other  conditions  needing  correction. 
In  1919  the  auditor's  representative  reported  to  your  committee  that  im- 
provements had  been  made  at  every  point. 

No  one  familiar  with  institutional  management  can  visit  the  head- 
quarters of  the  Ohio  board  of  administration  and  its  institutions,  as  we 
have  visited  twelve,  without  Avishing  to  testify  to  numerous  evidences 
of  progressive  administration.  Any  change  that  would  jeopardize  the 
Spirit  and  method  that  have  made  these  advance  steps  would  be  inadvis- 
able and  costly.  A  mere  mention  of  a  few  high  spots  will  show  that  the 
change  from  a  board  to  a  head  should  make  it  easy  to  extend  the  number 
of  excellences  or  high  spots : 

1  —  The  central  office  is  business-like  in  arrangement,  equipment 

and  atmosphere,  and  was  constructed  with  prison  labor. 

2  —  The  fiscal  supervisor  is  not  only  spontaneous  in  his  desire  to 

be  of  help  and  in  his  ability  to  place  finger  on  desired  in- 


ON   ADMINISTRATIVE   REORGANIZATION  509 

formation,  but  is  open-minded  and  keen  to  find  some  way  of 
improving  today's  practices. 
3  _  The  institution  chiefs  are  for  the  most  part  well  trained,  de- 
voted, and  professionally  ambitious,  in  fact,  the  type  of  officer 
whom  other  states  are  paying  at  much  higher  rates. 
4 —  The  manufacturing  and  sales  division  has  grown  from  $250,- 
000  to  $1,300,000,  which  increase  more  nearly  represents  qual- 
ity increase  than  is  the  case  in  comparable  private  business 
expansion  because  the  prices  for  prison-made  goods  have  not 
inflated,   and  numerous  state  purchasers   have    declared   that 
quality  of  goods  and  promptness  of  service  have  improved. 
5  — In  making  the   farms  more  productive,  many   advance   steps 
have  been  taken:    a  rotation  of  crops  is   scheduled;  records 
show  the  produce  by  each  cow  on  each  farm;  records  now 
show  not  only  the  total  production  of  each  kind  of  grain  and 
fruit,  but  also  the  acreage  in  each  and  henceforth  produce 
facts'  and  acres  employed  will  be  correlated ;  for  sales  there 
is  the  same  central  control  through  "requisition  for  sale"  as 
formerly  through  requistions  for  purchase  so  that  now  calves 
are  not  sold  at  one  farm  for  $5.00  and  at  another  at  $15.00 
as  was  formerly  the  case,  but  pedigreed  bull  calves  are  held 
for  their  real  value  which  in  some  cases  has  run  to  $75:00  or 
even  $800.00. 
6 —  The  bureau  of  juvenile  research  was  established  with  a  far- 
seeing  program  for  the  intelligent  analysis  of  the  state's  mental 
diseases  and  abnormality  among  children.    In  time  if  properly 
executed  this  program  would  vastly  improve  the  work  of  the 
public    schools   of    the   state,    the   probation   service   for^  the 
county  courts  and  the  work  in  the  various  state  institutions, 
while  at  the  same  time  showing  how  to  eliminate  the  mental 
defectives  from  the  state's  penal  and  correctional  institutions 
and  to  provide  for  the  segregation  of  mental  defectives  who 
when  at  large  are  a  greater  menace  to  society  than  are  even 
confirmed  criminals. 
7  —  Over  $3,000,000  plus  the  allowance  that  should  be  made  for 
the  rising  scale  of  prices  during  the  last  three  years  of  the 
board's  management  has,  the  chairman  of  the  board  estimates, 
been  saved  to  the  state  by  reductions  in  per  capita  costs  below 
the  rates  expended  under  the   independent  boards. 

The  foregoing  earmarks  of  efficiency  have  each  its  own  absolute 
value.  The  state  should  appreciate  them,  but  none  of  them  is  peculiar 
to  a  four-headed  organization.  None  of  them  is  impossible  or  difficult 
for  a  single-headed  executive  to  continue.  In  fact,  each  of  them  will 
be  easier  for  a  single  competent  executive  to  continue  and  develop  than 


510  REPORT    OF    JOINT    LEGISLATIVE    COMMITTEE 

for  any  four-headed  board,  particularly  any  board  which  under  present 
circumstances  can  reasonably  be  expected. 

The  member  who  has  built  up  the  manufacturing  and  sales  business 
is  about  to  retire,  as  is  the  senior  member  of  the  board.  The  two  re- 
maining members,  an  agriculturist  and  a  physician,  would  frankly  say 
they  are  not  qualified  by  experience  or  interest  to  manage  or  to  super- 
vise the  expansion  of  this  enormous  business.  However,  if  the  two 
present  members  should  decide  that  one  of  them  should  have  this  serv- 
ice, their  weight  might  easily  determine  such  action  at  a  meeting  with 
two  new  appointees.  It  is  not  at  all  probable  that  for  the  present  salary 
of  $5,000  any  new  member  can  be  obtained  who  is  qualified  for  this  heavy 
business  responsibility.  On  the  other  hand,  the  salary  necessary  to  se- 
cure a  man  qualified  to  do  this  work  would  undoubtedly  be  urged  also 
for  the  three  other  commissioners,  which  would  raise  the  combined  sal- 
aries to  a  prohibitive  total  of  from  $40,000  to  $60,000  a  year. 

Again,  the  high  type  of  executive  at  the  head  of  many  of  the  board's 
institutions  is  not  due  exclusively  to  the  board  of  administration,  but 
is  due  also  to  the  state  civil  service  commission's  competitive  examina- 
tion and  the  law's  protected  tenure.  The  board  itself  is  not  free  to 
dismiss  a  competent  chief,  even  if  it  wishes  to  do  so.  Where  it  has 
known  of  incompetence  and  might  have  made  removals  for  incompetence, 
it  has  waited  for  death  or  for  some  help  outside  of  itself  to  relieve  it  of 
responsibility  for  decisive  action.  It  has  failed  to  take  advantage  of  the 
excellent  capacities  of  its  chiefs  and  even  discontinued  "round  robin"  re- 
ports of  successful  practices  and  helpful  suggestions.  It  has  discouraged 
variations  in  business  practices.  Where  heads  lack  capacity  for  self  de- 
velopment, the  board  fails  to  foster  or  compel  study  or  improvement  as  in 
the  case  cited  of  the  girls'  industrial  school. 

Over  against  its  statesmanlike  judgment  in  establishing  a  bureau 
of  juvenile  research  has  already  been  cited  its  failure  to  utilize  that 
bureau.  Right  now  the  board  is  completing  a  hospital  and  observ- 
ing station  for  one  hundred  children,  with  but  two  showers,  although  the 
director  of  the  bureau  of  juvenile  research,  if  consulted  as  to  these  plans, 
must  assure  the  board  that  either  the  work  of  this  hospital  and  observ- 
ing station  will  be  seriously  hampered  by  the  lack  of  adequate  bathing 
facilities,  or  else  at  considerable  expense,  the  state  must  rip  up  newly 
built  rooms  and  install  additional  showers  and  other  bathing  facilities. 

One  of  the  final  arguments  made  for  a  board  is  that  several  heads 
are  needed  for  parole.  The  reading  of  the  minutes  shows  that  at  one 
sitting  in  August,  1919,  the  board  decided  to  discharge  185  boys  and  to 
parole  176  from  the  boys'  industrial  school,  for  dates  as  far  ahead  as 
eight  weeks.  Where  in  part  of  one  day  351  boys  are  disposed  of,  it  is 
obvious  that  the  paroling  board  is  merely  "rubber-stamping"  the  recom- 
mendations of  the  responsible  institution  head.     Nothing  in  such  a  case 


ON    ADMINISTRATIVE    REORGANIZATION  51I 

is  done  by  three  or  four  board  members  which  could  not  be  done  equally 
well  by  a  single  head. 

The  extent  to  which  the  board  has  acted  as  a  deliberative  body  is 
difficult  to  ascertain  because  the  minutes  show  only  actions  taken.  For 
example,  October  14,  1919,  when  the  above  mentioned  hearing  was  given 
to  the  state  board  of  charities  for  presenting  the  facts  as  to  various  short- 
comings in  the  management  of  the  girls'  industrial  school,  the  minutes 
give  no  conception  of  the  nature  of  that  conference.  They  fail  to  record 
that,  and  when,  the  chairman  left  the  room,  although  the  fact  that  he 
was  absent  part  of  the  hearing  and  the  fact  that  he  left  because  of  his  own 
board's  conduct  throw  important  light  upon  the  board  as  a  deliberative 
body.  The  reading  of  the  minutes  for  two  years  gives  no  indication  that 
there  is  need  for  four  commissioners  rather  than  one.  This  is  not  meant 
to  imply  that  many  unsettled  problems  were  not  discussed  over  and  over 
again  by  the  board  in  session  and  between  sessions.  The  point  is  that  the 
matters  that  were  up  for  discussion  called  for  definite  information  and 
for'  action  rather  than  for  discussion. 

In  this  connection  it  should  not  be  forgotten  that  where  record  of 
action  is  kept  there  are  so  many  parties  to  the  conduct  of  a  state  insti- 
tution that  it  is  extremely  difficult  for  serious  injustice  to  be  concealed 
and  protected  over  a  long  period.  While  such  possibility  exists,  exper- 
ience shows  that  it  is  quite  as  easy  for  it  to  exist  under  a  board  manage- 
ment as  under  a  single  head. 

The  responsibility  for  inadequate  reporting  for  the  board's  important 
institutional  service  cannot  be  shifted  entirely  to  the  secretary  of  state 
The  board  is  free  to  print  its  own  reports  with  its  own  prison  help.  It 
already  prints  a  very  elaborate  statistical  report  with  a  very  great  deal 
of  expensive  tabular  composition.  The  last  of  these  reports  contains  313 
pages,  plus  II  inserted  tables,  all  but  about  10  pages  of  which  material 
is  in  very  fine  type.  There  is  not  a  line  which  indicates  that  any  member 
of  the  board  or  any  of  its  employees  has  studied  the  social,  economic  and 
medical  problems  for  which  these  pages  give  elaborate  cost  facts.  On  the 
contrary,  there  is  evidence  that  the  board  has  failed  to  develop  this  par- 
ticular kind  of  study. 

Whether  or  not  one  head  is  suDstituted  for  four,  one  of  the  first 
steps  which  should  be  taken  is  to  establish  a  division  for  the  study  of  the 
human  aspects  of  institutional  management,  analogous  to  the  specialists 
in  engineering  and  agriculture  who  are  now  employed.  Every  institution 
head  should  be  constantly  studying  the  social  problems  entrusted  to  him 
and  the  meaning  of  his  institution's  work.  Nothing  will  encourage  such 
study  more  than  requiring  a  publication  of^  a  periodic  report  in  which 
each  head  may  seek  professional  recognition  at  the  same  t-ime  that  he 
gives  an  account  of  his  stewardship  to  the  board  which  employs 
him,  to  the  governor  who  is  responsible  for  that  board,  and  to  the  people 
of  Ohio  for  whom  he  works. 


512  REPORT    OF    JOINT   LEGISLATIVE    COMMITTEE 

Elaborate  statistics  are  helpful  only  if  somebody  studies  them.  For 
example,  the  excellent  blanks  instituted  the  last  quarter  of  the  current 
fiscal  year  for  the  purpose  of  comparing  amounts  raised  with  acres,  while 
a  credit  to  the  board,  also  emphasize  the  fact  that  for  eight  years  no  com- 
parisons have  ever  been  made  to  show  how  different  institutions  compare 
as  to  product  per  acre.  For  six  acres  of  beans'  we  find  five  institutions 
varying  from  210  bushels  to  604  bushels,  or  if  we  take  the  bushels  per 
employee  engaged  in  raising  beans  the  amounts  were  respectively  108, 
144,  51,  201,  70.  For  green  com,  the  number  of  dozen  ears  per  acre 
varied  from  197  to  8060,  the  totals  being  197,  469,  548,  598,  8060.  The 
cost  of  producing  milk  varied  per  gallon  from  iic  at  the  reformatory  to 
29c  at  the  boys'  industrial  school.  The  point  is  that  this  kind  of  com- 
parison has  not  been  made  in  the  elaborate  annual  reports,  although  the 
facts  for  comparison  have  been  printed  in  them. 

From  want  of  organization  at  the  central  office,  either  through 
a  board  member  or  a  qualified  investigator,  the  board  has  failed  to  do 
the  educational  work  which  is  the  final  test  of  managing  hospitals  for 
those  suffering  from  tuberculosis,  hospitals  for  the  epileptic,  industrial 
schools  for  the  wayward,  reformatories  for  those  not  yet  steeped  in  crime, 
and  penitentiaries  for  experienced  criminals.  The  state  sanitorium  for 
tubercular  patients  has  no  excuse  for  existence  except  that  it  conducts 
a  militant  training  school  for  teaching  that  tuberculosis  can  be  cured  and 
can  be  prevented.  Hospitals  for  the  insane  that  report  over  one-third  of 
their  patients  discharged  as  recovered  and  one-sixth  discharged  as  im- 
proved also  have  a  great  educational  work  in  the  prevention  of  insanity 
and  the  restoration  of  individual  and  social  conditions  that  will  tremend- 
ously reduce  the  drain  upon  the  state  for  the  maintenance  of  insane 
patients. 

Neither  within  individual  institutions  nor  in  conferences  of  in- 
dividual hospitals  or  in  conferences  of  all  hospital  chiefs,  nor  in  the 
board's  publicity  nor  in  provision  for  out-patient's  work,  has  the  board 
recognized  the  importance  of  its  preventive  educational  service.  In  the 
correctional  field  there  is  the  same  failure  to  analyze  the  experience  of 
the  board's  own  institutions  and  to  recognize  prevention  and  education  as 
more  vital  than  the  maintetiance  of  reformatories  and  penitentiary. 

Not  even  in  its  budget-making  has  the  board  exerted  the  multiple 
influence  of  four  heads ;  instead  of  being  four  or  more  times  as  effective 
as  one  man  in  presenting  the  needs  of  the  institutions  entrusted  to  it, 
this  lM>ard  of  four  members  seems  to  have  been  less  effective.  In  1920 
the  chairman  of  the  board  gave  to  a  newspaper  as  a  reason  for  asking 
the  governor  not  to  re-appoifit  him  at  the  expiration  of  his  term.  Febru- 
ary 15,  1920,  that  he  was  disgusted  with  the  legislature's  refusal  to 
give  the  money  absolutely  needed  for  building  up  industries  and  for 
maintaining  institutions.  He  cited  cottages  for  the  feeble  minded  which 
were  already  built  and  which  the  state  was  going  to  the  expense  of  heat- 


ON    ADMINISTRATIVE   REORGANIZATION  513 

ing  in  order  to  keep  the  pipes  from  bursting,  that  the  board  of  admin- 
istration was  unable  to  put  patients  into  for  want  of  a  paltry  $10,000 
for  equipment.  Accepting  without  reservation  the  chairman's  own  state- 
ment of  the  situation,  and  without  seeking  to  learn  whether  in  a  budget 
of  several  million  dollars  there  were  accruals  of  $10,000  which  the 
emergency  board  would  permit  to  have  transferred,  the  lesson  is  here 
drawn  that  the  board  of  administration  had  failed  to  secure  the  public's 
attention  and  the  legislature's  attention  to  facts  which  needed  only  to  be 
stated  properly  in  order  to  win  action. 

A  single  director  of  welfare  administration  would  be  directly  re- 
sponsible to  the  governor.  If  anything  goes  wrong,  if  a  complaint  is 
to  be  answered,  if  information  is  desired  by  the  legislature,  there  will 
be  one  person  responsible.  That  one  could  not  make  the  excuse  that 
his  fellow  board  members  were  away  or  that  they  disagreed  with  him. 
So  great  would  be  his  power  to  help  or  to  hurt  the  governor's  reputa- 
tion that  few  governors  would  knowingly  appoint  an  incompetent  or 
willingly  gamble  on  the  prospect  of  incompetence  when  they  have  it  in 
their  power  to  select  executives  whose  past  experience  and  whose  known 
personality  give  almost  positive  proof  of  ability  to  succeed.  To  sub- 
stitute such  a  single  head  is  in  the  direct  line  of  progress  and  a  logical 
next  step  in  dealing  with  Ohio's  institutions. 

Conscious  of  his  responsibiHty,  and  accustomed  to  acting  on  the 
basis  of  information  for  which  his  business-like  office  would  be  central, 
a  director  of  welfare  administration  would  find  it  easy  to  make  more 
use  of  citizen  cooperation  than  has  been  reasonably  practicable  for  a 
board  of  four 


33 


PHYSICAL  EDUCATION  AT  THE  SCHOOLS 
FOR  THE  BLIND  AND  THE  DEAF 

By  WILLIAM  H.  ALLEN 


Friends  of  the  blind,  including  former  officers  of  the  Ohio  staf^ 
school  for  the  blind,  and  members  of  the  commission  for  the  blind  would 
like  the  state  school  to  be  separate  from  the  other  institutions  under  the 
board  of  administration. 

A  state  school,  they  say,  should  be  a  school ;  it  should  have  nothing 
in  its  management  or  its  association  to  connect  it  with  institutions  for 
the  subnormal  and  the  delinquent  or  criminal.  They  argue  that  whatever 
may  have  been  the  initial  thought  regarding  the  state  school,  the  present 
thought  is  that  it  is  easier  to  bring  a  number  of  the  blind  together  in  one 
place  and  to  give  them  the  training  which  is  their  due  than  to  take  that 
training  to  them  in  small  localities.  They  approve  the  teaching  of  the 
blind  with  the  seeing  in  public  schools  as  is  being  done  particularly  in 
Cleveland  and  Cincinnati. 

If  Ohio  had  a  separate  administrative  board  which  was  managing 
strictly  educational  institutions,  it  would  be  appropriate  to  transfer  the 
school  for  the  blind  and  the  school  for  the  deaf  to  such  a  board.  Since, 
however,  Ohio  has  no  central  board  for  managing  educational  institutions, 
and  has  no  other  work  with  which  the  school  for  the  blind  or  the  school 
for  the  deaf  might  be  combined,  the  alternative  is  to  establish  an  entirely 
new  board  or  to  leave  the  management  of  this  institution  with  the  same 
office  that  manages  twenty-two  other  institutions. 

Confronted  with  such  alternatives,  Ohio  would  do  best  to  retain 
with  the  other  institutions  the  schools  for  the  blind  and  the  deaf.  A 
director  of  welfare  administration  can  do  all  and  more  than  their  friends 
now  desire  for  these  schools,  provided  he  uses  an  educational  supervisor. 

The  need  for  an  educational  supervisor  is  so  apparent  that  no 
person  competent  to  be  director  of  welfare  administration  could  i)os- 
sibly  try  to  get  along  without  one.  In  sjjitc  of  this  fact  the  earlier 
recommendation  is  repeated  that  any  law  creating  a  director  of  wel- 
fare admniistratioii  would  brst  not  specify  the  type  of  organization  which 
he  should  (■nii)lov  for  doing  his  many  sided  work,  but  should  rather  hold 
him  rcsponsil)lc  for  getting  results  and  make  the  specification  of  super- 
visors a  matter  to  be  determined  each  year  at  budget  making  time  ac- 
corduig  to  that  year's  foremost  needs. 

The  absence  of  an  educational  supervisor  has  already  been  mentioned 
with  respect  to  the  two  industrial  schools  for  girls  and  boys.     There  is 

5 '4 


ON    ADMINISTRATIVE   REORGANIZATION  515 

similar  need,  in  some  ways  even  more  important  for  the  state,  at  the  two 
reformatories,  the  penitentiary,  and  the  prison  farm.  For  the  two  last 
named  institutions  the  chaplains  are  doing  their  best  but  without  facil- 
ities, funds,  time  allowance  for  prisoners,  or  training  on  the  part  of  the 
chaplains  themselves. 

This  general  need  will  be  provided  for  if  the  recommendation  is 
adopted  that  the  state  department  of  public  instruction  be  required  to 
inspect  and  report  upon  educational  program,  methods  and  results  at  all 
of  these  institutions,  including  the  hospitals  for  the  insane,  where  there 
is  much  possibility  of  improvement  through  teaching. 

To  illustrate  the  need  and  to  show  concretely  how  the  present  board 
of  administration  has  failed  to  organize  helpful  direction  for  its  schools, 
two  brief  reports  are  here  cited  upon  physical  education  at  the  schools  for 
the  blind  and  the  deaf,  made  by  Miss  Marie  M.  Weber,  then  physical 
director  for  the  War  Camp  Community  Service,  Columbus. 

PHYSICAL    EDUCATION    FOR    THE    BLIND 

The  time  given  is  two  forty-minute  periods  a  week  for  all  students. 
Two  recreation  periods  are  used :  4  150  to  5  :30.  The  course  consists  of 
the  simplest  setting  up  exercises.  In  warm  weather  the  playground  is 
supervised,  so  that  the  children  will  not  injure  themselves. 

No  swimming. 

No  athletic  games. 

No  games  in  the  gymnasium. 

No  hiking. 

The  posture  is  very  poor.  Training  in  posture  is  not  emphasized 
enough  when  giving  the  children  their  physical  training. 

In  teaching  no  music  is  used.  The  teacher  depends  entirely  upon 
counting.  Descriptive  commands  are  given,  then  the  instructor  goes 
around  and  helps  individuals  with  the  assistance  of  those  members  of 
the  class  who  are  not  totally  blind. 

The  students'  attitude  toward  gymnastic  work  is  enthusiastic.  They 
are  anxious  to  learn  all  exercises  correctly. 

Complete  physical  examinations  are  lacking ;  children  are  not  taught 
how  to  overcome  defects  nor  are  they  taught  how  exercises  benefit  the 
body. 

School  credit  is  not  given  for  home  work.  Individuals  are  not  taught 
either  exercises  or  games  which  they  can  do  later  at  home. 

The  teacher  has  had  some  training.  She  gives  only  part  time  to 
physical  training  as  she  is  the  secretary  of  the  superintendent.  She 
understands  her  work,  however,  and  has  the  children's  interest  at  heart. 

The  equipment  consists  of  a  girls'  gymnasium  with  a  large  space  but 
no  apparatus,  and  the  boys'  gymnasium  with  apparatus  that  blind  can  use. 
The  playground  is  well  equipped  with  apparatus  which  the  blind  can  use 


5i6 

safely,  slides,  swings,  chinning  rods,  and  a  large  "never  still".  No 
gymnasium  uniforms  are  used.  Two  out  of  twenty-seven  wore  bloomers. 
Social  life:  at  table  children  are  allowed  to  converse.  They  are 
divided  into  groups  of  eight.  One  girl  partially  blind  at  each  table  serves. 
Children  are  taught  by  the  teachers  how  to  eat.  Teachers  take  turns 
in  the  dining  room  for  this.  Twice  a  month  there  is  an  entertainment 
for  older  students.  They  are  taught  parlor  games  which  they  can  play. 
The  principal  object  of  these  is  to  have  the  boys  and  girls  meet  each 
other  in  a  social  way. 

PHYSICAL   EDUCATION    FOR  THE  DEAF 

The  time  given  is  fifteen  minutes  three  times  a  week  for  those  6  to 
12;  one  hour  twice  a  week  for  those  12  through  sophomore  year  in  high 
school ;  high  school  juniors  and  seniors  do^  not  have  formal  work  in 
physical  education. 

The  girls'  work  consists  one-fourth  of  exercises  where  dance  figures 
predominate;  one  fourth  marching  and  fancy  drill;  and  one  half  of  small 
group  dancing.  Spectacular  work  is  much  in  evidence.  The  more  grace- 
ful ones  do  the  dancing  while  others  stand  around  and  look  on.  The 
latter  were  rebuked  when  they  communicated  with  one  another  or  tried 
to  imitate  those  dong  fancy  dancing,  which  took  the  same  small  group 
each  time  —  about  ten  out  of  a  class  of  forty. 

No  gymnastic  games  were  played ;  the  children  have  certain  times 
for  play  but  are  taught  no  games  in  their  gymnastic  classes  or  elsewhere. 

Girls  have  no  athletic  games ;  there  is  no  one  to  coach  them,  as  the 
regular  physical  training  teacher  is  not  interested  in  or  acquainted  with 
athletic  games.  Although  there  is  a  big  swimming  pool  there  are  no 
regular  swimming  classes.  Girls  are  allowed  to  use  the  pool  at  certain 
times. 

Hiking  —  none.  * 

The  boys'  physical  training  consists  of  drilling,  setting  up  exercises, 
and  use  of  apparatus.  Their  work  is  not  as  spectacular  as  that  of  the 
girls,  but  there  is  hard  work  for  all. 

Games  in  gymnasium  —  none. 

Of  athletic  games,  the  boys  have  football  and  -basketball  teams  which 
compare  favorably  with  teams  composed  of  hearing  boys.  Only  the  most 
fit,  however,  get  a  chance  at  these  games. 

Swimming  is  not  taught  regularly.  At  certain  times  the  boys  are 
allowed  to  use  the  pool. 

Interclass  contests  —  none. 

Hiking  —  none. 

The  posture  for  both  boys  and  girls  was  as  a  rule  good.  The  teach- 
ers set  good  examples. 


ON    ADMINISTRATIVE   REORGANIZATION  517 

The  method  of  teaching-  is  by  imitation ;  the  teacher  goes  through  the- 
exercises  first.  Music  is  used ;  the  children  feel  the  rythm  and  thus 
keep  in' time  and  together. 

The  students'  attitude  toward  the  work  seemed  to  be  that  it  was  a 
bore.  The  children  did  the  exercises  without  energy  and  without  inter- 
est. The  few  girls  who  re  nved  special  attention  to  their  dancing  were 
exception.  Otherwise  students  seem  to  go  through  this  physical  work 
because  they  have  to  and  are  simply  waiting  for  the  period  to  be  over. 
They  are  nervous  and  fidgety  whenever  a  pause  occurs  for  change  of 
music. 

Physical  examinations  are  not  given. 

The  children  are  not  taught  the  value  of  exercise  in  self-improve- 
ment. School  credit  for  home  work  is  not  given.  Children  are  not 
taught  either  exercises  or  games  which  they  can  execute  at  home.  They 
are  taught  exercises,  but  not  their  value,  and  thus  there  is  no  incentive 

The  teacher  is  a  dancing  expert,  with  no  other  preparedness  in 
physical  training.  She  g-ives  exercises  more  for  the  effect  they  will 
produce  than  for  the  physical  benefit  of  the  child.  She  appears  to  scorn 
the  awkward  and  allows  them  into  her  classes  only  because  it  is  required. 
For  example,  a  group  of  very  awkward  girls  who  are  fast  becoming 
aware  of  very  long  arms  and  legs  were  standing  in  a  corner  near  the 
teacher  and  visitor.  The  teacher  remarked:  "Now  what  can  you 
do  when  you  have  to  put  up  with  such  as  these?"  When  asked  if  she 
taught  the  girls  any  athletic  games,  she  replied :  "No,  I  never  had  time 
to  learn  anything  about  them.  You  know  when  one  dances  one  just  has 
to  keep  right  at  it.     I  hardly  have  time  for  anything  else." 

The  equipment  consists  of  one  good  sized  gymnasium  fully  equip- 
ped, but  not  kept  well  enough  ventilated ;  there  are  swimming  pools 
with  showers ;  football  field  with  goal  posts ;  a  playground  with  slides, 
swings  and  sand  piles ;  a  large  playroom  with  cement  floor  on  which 
children  can  skate. 

For  gymnasium  work  there  is  no  uniform — three  girls  out  of  a 
class  of  forty  wore  bloomers. 

A    REMINDER 

In  reporting  these  conditions  in  one  field  that  need  correction,  sight 
is  not  lost  of  the  admirable  work  which  these  two  schools  have  done  and 
are  doing.  This  is  a  study  of  organization,  not  of  efficiency.  One  field 
is  cited  where  work  has  not  yet  sufficiently  developed  merely  to  illustrate 
the  need  for  a  kind  of  helpfulness  which  neither  the  board  of  adminis- 
tration nor  the  boarvf  of  state  charities  nor  the  state  department  of  public 
instruction  has  crg<v,nzed  to  give. 


OHIO  COMMISSION  FOR  THE  BLIND 

By  WILLIAM  H.  ALLEN 


It  is  recommended  tliat  the  commission  for  the  IjHnd  as  a  propa- 
ganda or  echacating-  agenc\-  be  continued  after  its  achninistrative  duties 
have  been  transferred  to  the   director  of   welfare  administration. 

If  the  state  were  fully  awake  to  the  fact  that  a  large  percentage  of 
blindness  is  preventable,  —  and  easily  preventable ;  that  there  is  much 
abuse  in  administering  the  pension  fund  for  the  blind;  that  self-support- 
ing work  can  be  organized  and  is  being  widely  organized  for  the  blind  in 
homes  and  in  business ;  that  methods  of  educating  and  employing  the 
blind  need  to  be  studied  and  improved,  —  it  would  be  possible  and  ad- 
visable to  dispense  with  this  separate  commission  for  the  blind 

In  such  case  the  proper  organization  would  be  to  hold  the  board 
of  state  charities  responsible. 

Because,  however,  the  state  is  not  yet  fully  awake  to  these  facts 
there  is  need  for  a  group  inspired  with  a  veritable  passion  for  pre- 
venting blindness  and  for  helping  the  blind  who  will  see  the  present 
neglect  and  will  feel  that  the  most  important  single  thing  is  to  open 
the  public's  eye  to  that  neglect. 

For  such  a  purpose  of  s])ecial  emphasis  and  special  pleading,  a 
special  commission  will  serve  l)etter  than  rei)resentation  of  this  interest 
on  a  board  of  state  charities. 

It  is  further  recommended  that  this  commission  for  the  blind  be 
increased  to  five  members,  because  the  work  suggested  is  propaganda 
work,  because  the  work  for  the  blind  is  spread  over  the  state,  and  be- 
cause a  board  of  three  while  better  for  administration  than  a  board  of 
five  is  too  small  for  most  profitable  discussion. 


518 


PREVENTIVE  EDUCATION  AS  TO  SUB- 
NORMALS 

By  WILLIAM  H.  ALLEN 


P'rom  all  over  Ohio  }'our  committee  was  told  that  one  of  the  great- 
est problem.s  is  the  care  of  the  feeble-minded.  Normal  children  in 
public  schools  are  held  back  in  their  work  and  in  other  ways  often 
seriously  injured  by  forced  contact  with  the  feeble-minded  or  the 
epileptic. 

Nor  has  the  legislature  been  unaware  of  this  condition.  It  has 
been  providing  maintenance  for  a  great  institution  for  over  two  thou- 
sand feeble-minded  at  Columbus ;  for  another  great  institution  for 
over  sixteen  hundred  epileptics  at  Gallipolis ;  for  a  large  number  of 
feeble-minded  scattered  through  the  state  hospitals  for  the  insane ; 
for  other  feeble-minded  in  industrial  schools,  reformatories,  and  peni- 
tentiary; and  for  still  more  feeble-minded  a  good  new  institution  is 
now  under  construction ;  finally  there  is  a  new  observation  home  and 
school  for  the  bureau  of  juvenile  research  which  is  equipped  to  help 
Ohio  discover  which  of  its  children  are  subnormal  or  supernormal. 
Yet  it  is  doubtful  if  Ohio  will  in  a  generation  have  accommodations 
enough  for  segragating  its  feeble-minded  children  and  parents.  If  it 
built  a  home  for  two  thousand  feeble-minded  each  year  for  the  next 
ten  years  it  could  not  take  care  of  its  feeble-minded.  Unless  some 
striking  change  takes  place  in  the  public  willingness  to  spend  money, 
there  is  no  hope  in  sight  of  Ohio's  providing  farms  and  homes  enough 
to  take  care  of  its  feeble-minded  children  and  others. 

The  only  alternative  at  present  is  to  muddle  along,  add  a  few  more 
hundred  beds  each  decade  for  the  most  extreme  cases  of  feeble-minded- 
ness,  and  leave  the  other  thousands  without  supervision,  a  constant 
menace. 

Neither  the  board  of  administration  nor  the  board  of  state  chari- 
ties has  done  one  percent  of  the  educational  work  that  should  have 
been  done  and  should  be  done  every  year  to  let  and  to  compel  the 
,people  of  Ohio  to  comprehend  what  it  means  that  thousands  of  per- 
sons, prospective  feeble-minded  fathers  and  mothers,  are  at  large  mingling 
with  sound-minded  children  and  adults  who  are  unable  to  protect  them- 
selves fullv  because  they  do  not  comprehend  fully  what  feeble-minded 
or  subnormal  parentage  means. 

Less  tragic,  possibly,  to  the  individual,  but  even  more  costly  to 
the   family,   is  the   fact   that  in  large   numbers   through  the   state  as   a 


520  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

a  whole  feeble-minded  fathers  and  feeble-minded  mothers  are  having  chil- 
dren that  with  almost  scientific  certainty  will  be  one  hundred  percent 
feeble-minded. 

While  the  numbers  of  the  epileptic  are  fewer,  and  while  a  large 
proportion  of  the  epileptic  are  oi  sound  mind,  present  day  science 
tells  us  that  it  is  a  crime  agaist  one's  self,  one's  children,  and  one's 
parents  for  a  person  known  to  be  epileptic  to  marry  and  have  children. 

A  second  alternative  has  been  considered  by  scientists  and  pro- 
gressive heads  of  institutions  for  the  feeble-mincled  and  the  epileptic, 
namely  to  iinsex  the  feeble-minded  and  the  epileptic,  and  the  confirmed 
criminal.  This  alternative  would  not  be  accepted  today  by  the  people 
of  Ohio.  It  may  be  that  within  the  legislature  a  majority  would  ap- 
prove it.  Certainly  it  is  true  that  almost  unanimously  best  informed 
sentiment  among  physicians,  social  workers,  alienists,  specialists  in  deal- 
ing with  the  subnormal,  would  emphatically  declare  that  the  only  intelli- 
gent procedure  for  modern  society  is  to  take  this  humane  means  of  pre- 
venting future  hordes  of  feeble-minded  and  other  subnormal  human 
beings  from  menacing  society. 

If  these  specialists  are  wrong  the  states  should  see  that  they  are 
corrected  and  stop  giving  misinformation  to  the  public. 

If  they  are  right,  the  state  through  its  welfare  administration  and 
its  board  of  charities  should  begin  and  prosecute  an  educational  pro- 
gram that  will  inform  the  pu1:»lic  and  overcome  prejudices  based  upon 
misinformation. 

The  only  organized  opposition  is  that  of  certain  religious  groups. 
Each  of  several  Ohio  specialists  who  were  consulted  recognized  this 
religious  opposition,  but  also  admitted  that  if  was  unquestionably  based 
upon  misinformation  that  could  be  removed  by  information. 

The  first  state  that  wins  the  support  of  its  public  for  the  unsexing 
of  persons  whose  subnormality  is  a  constant  menace  and  a  financial 
burden  will  benefit  in  several  ways:  It  will  greatly  reduce  the  cost 
of  maintaining  the  subnormal  in  or  out  of  institutions  because  the  rea- 
sons for  custodial  care  will  largely  disappear;  secondly,  many  persons 
who  just  because  of  their  physical  strength  are  the  greater  menace 
outside  an  institution  might  be  safely  returned  to  society  for  help  on 
farms  and  in  manual  labor  where  they  could  earn  more  than  their 
keep.  Many  families  who  now  feel  that  it  is  kinder  to  their  own 
deficient  girls  to  have  them  cared  for  in  an  institution  would  gladly 
retain  them  at  home  if  it  were  made  safe  for  the  girl  and  for  society. 
Finally,  the  state  could  reasonably  hope  to  catch  u])  witli  its  need  for 
custodial  care  within  institutions  for  those  cases  which  cannot  be 
humanely  cared  for  in  any  private  home. 

The  need  for  this  education  is  cited  for  a  second  reason,  namely 
to  point  out  another  need  which  tlie  ])resent  board  of  administration 
is   not   organized   to   meet,   and    which    should   be    inrl    whether   or   not 


ON   ADMINISTRATIVE   REORGANIZATION  5^1 

Ohio  changes  from  a  four-headed  board  to  a  one-headed  director ; 
Ohio  should  obtain  vastly  more  information,  suggestion,  and  aggres- 
sive leadership  from  the  specialists  in  human  ills  who  head  its  twenty 
odd  state  institutions,  which  can  be  done  by  improved  reporting  and 
the  round  robins  suggested  in  another  section  of  this  report.  Condi- 
tions call,  however,  for  more  frequent  and  more  useful  conferences 
of  these  heads  and  their  assistants. 

The  present  quarterly  conferences  are  found  agreeable  and  help- 
ful. The  board  pays  the  expenses  of  its  superintendents  to  one  insti- 
titution  after  another.  Two  sessions  are  held,  and  prepared  papers  are 
read  and  discussed.  Printed  reports  of  these  meetings  are  issued.  In 
addition  there  is  the  pleasure  and  profit  of  meeting  together  away  from 
duty  and  of  having  two  meals  prepared  with  the  attention  that  char- 
acterizes hostesses  arid  hosts  in  institutions. 

Similar  conferences  are  needed  of  seconds  in  command,  of  those 
in  charge  of  statistical  work,  of  purchasing  agents  or  supply  bureau 
or  stock  room  clerks,  of  nurses,  of  X-ray  operators,  etc. 

Group  conferences  are  also  needed,  where  birds  of  a  feather  only 
will  be  present.  These  are  needed  as  supplements,  not  substitutes  for 
the  general  conference.  Physician  heads  of  hospitals  for  the  insane 
have  problems  which  they  can  helpfully  analyze  and  frankly  analyze 
together  and  which  they  can  treat  only  superficially  with  heads  of 
industrial  schools  and  reformatories. 

All  conferences  would  be  more  profitable  if  there  were  no  formal 
papers  at  the  conference.  The  time  of  institution  heads  is  too  valuable 
to  listen  to  prepared  speeches.  If  papers  were  submitted  in  advance 
to  be  read  and  studied  by  all  parties  to  the  conference,  the  actual  con- 
ference time  could  be  given  to  questions  and  answers. 

For  example,  at  the  Toledo  meeting  in  October,  1919,  to  which 
the  chairman  of  the  board  kindly  invited  your  field  agent,  a  valuable 
paper  was  read  by  one  hospital  head.  Yet  it  was  hard  to  hold  the 
interest :  the  paper  was  too  long ;  it  was  written  to  be  read  rather  than 
heard;  it  had  a  rhetorical  approach,  a  balanced  treatment,  a  pleasing 
conclusion.  In  the  discussion  that  followed  the  physician-head  re- 
peatedly accomplished  as  much  by  succinct,  fact-loaded  one-minute 
answers  as  in  five  or  ten  minutes  of  reading. 

Another  advantage  of  having  papers  submitted  and  studied  in  ad- 
vance is  that  the  presiding  officer  can  with  reasonable  ease  equip  him- 
self to  draw  out  the  experience  that  is  repeated  in  the  group. 

One  further  suggestion  regarding  conferences  is  that  not  more  than 
one  general  subject  be  treated  at  a  session,  or  at  one  conference.  For 
example,  the  first  subject  at  the  second  quarterly  conference  held  dur- 
ing the  progress  of  your  committee's  study  was  the  unsexing  of  feeble- 
minded and  other  dangerously  subnormal  persons.  No  more  important 
subject  could  have  been  before  this  group.     Every  officer  present  has 


522  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

to  deal  with  tliis  problem  :  the  warden  of  the  penitentiary  has  several 
hundred  —  nohodv  knows  how  many  feeble-minded;  the  hospitals  for 
the  insane  not  onl)  have  combinations  of  feeble-mindedness  and  in- 
sanity but  are  sent  too  many  feeble-minded  persons  who  are  not  insane 
and  never  were  sane;  the  superintendent  of  the  hospital  for  epileptics 
and  the  hospital  for  the  feeble-minded  are  dealing  with  the  problem 
every  day ;  the  industrial  schools  and  reformatories  have  nobody  knows 
what  proportion  of  feeble-minded.  Had  these  officers  been  prepared 
for  conferences  by  a  method  that  caused  each  to  ask:  how  does  that 
affect  my  work?  what  light  does  my  experience  throw  on  that  subject? 
no  one  day  would  have  sufficed  for  discussing  this  subject.  Yet  on  the 
program  it  was  but  one  of  several  different  subjects.  The  probability 
is  that  by  the  end  of  the  day  subjects  two,  three  and  four  had  ahnost 
completely  driven  this  first  subject  from  the  minds. 

A  different  mobilizing  of  experience  at  these  conferences,  and  the 
holding  of  several  group  conferences  during  the  year  supplemented  by 
the  exchange  of  high  spot  information  and  questions,  do  not  require  a 
reorganization  of  the  present  board  of  administration.  These  steps  can 
be  taken  by  a  board  of  four.  They  are  not  so  apt  to  be  taken  by  a  board 
of  four  as  by  a  director  of  welfare  administration  who  is  required  to 
view  the  whole  field  and  expected  to  keep  abreast  of  the  best  practices 
throughout  the  world. 


THE  OHIO  BOARD  OF  STATE  CHARITIES 

By  WILLIAM  H.  ALLEN 


The  Ohio  board  of  stale  charities  now  consists  of  nine  members, 
the  governor  president  ex-ofhcio  and  eight  persons  appointed  by  the 
governor.  The  law  requires  that  not  more  than  half  of  the  board  shall 
be  of  the  same  political  affiliation  or  belief  which,  of  course,  requires 
that  the  governor  ascertain  political  affiliations  and  beliefs  before  making 
appoitnments.  The  present  terms  are  four  years,  two  coming  in  and 
two  going  out  each  year.     The  business  of  the  board  is  to 

"Investigate  by  correspondence  and  inspection  the  system, 
condition  and  management  of  the  public  and  private  benevolent 
and  correctional  institutions  of  the  state  and  county,  and  munici- 
pal jails,  work-houses,  infirmaries  and  childrens  homes,  and  all 
maternity  hospitals  or  homes,  lying-in  hospitals,  or  places  where 
women  are  received  and  cared  for  during  parturition,  as  well 
as  institutions  whether  incorporated,  private,  or  otherwise  which 
receive  and  care  for  children." 

In  addition  to  these  original  and  general  duties  the  board  is  now 
responsible  for  ascertaining  for  which  patients  in  hospitals  for  the  insane 
relatives  shall  pay  and  for  which  inmates  of  the  institution  for  feeble- 
minded counties  shall  pay  and  the  amounts ;  also  for  special  supervision 
of  all  child  placing  and  carrying  agencies.  These  two  duties  are  ad- 
ministrative. For  discharging  them  the  board  has  organized  a  support 
department  and  a  child  welfare  department.  For  the  board's  work  m 
192 1  $102,000  was  appropriated. 

It  is  recommended : 

I That  the  present  board  of  state  charities  with  nine  members 

be  abolished. 

2 —  That  the  departments  of  support  and  child  welfare  be  trans- 
ferred to  the  director  of  welfare  administration. 

2  —  That  a  differently  constituted  state  board  of  charities  with  five 
members  be  established. 

4  —  That  the  law  specifically  recognize  five  different  interests  in 
this  board,  that  is,  five  different  types  of  problems  to  be  given 
future  attention  by  five  board  members : 
(i)     Institutional  care  of  the  insane  and  study  of  insanity. 

523 


524  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

(2)  Out-of-institution  care  of  the  insane  such  as  after-care, 
diagnostic  clinics  and  education  of  the  public  with  respect 
to  insanity  and  its  preventives. 

(3)  Care  of  the  feeble-minded  and  epileptic  and  education 
with  respect  to  the  cause  and  social  costs  of  feeble-mind- 
edness'and  epilepsy. 

(4)  Public  provision  for  dependent  children  in  county  homes, 
private  child  placing,  etc. 

(5)  Correctional  work  in  the  two  industrial  schools,  two 
reformatories,  penitentiary  and  prison  farm  and  in  county 
courts,  probation  officers  and  workhouses. 

5  —  That  the  law  make  it  impossible  for  a  board  member  to  succeed 

himself  or  herself  but  make  the  term  five  years  —  or  seven 
years  in  case  seven  members  should  be  appointed  —  one  mem- 
ber to  go  out  and  one  new  member  to  come  in  each  year. 

6  —  That  the  law  contain  no  reference  to  the  party  affiliations  or 

beliefs  of  members. 

7  —  That  the  law  require  eight  meetings  a  year  of  the  board  at 

institutions  within  its  jurisdiction  with  the  proviso  that  not 
more  than  one  meeting  shall  be  held  at  any  one  institution 
oftener  than  once  in  two  years. 

8  —  That  the  law  foster  regular  attendance  at  the  board  meetings 

by  declaring  that  failure  to  attend  two  meetings  a  year  without 
,   writing  an  accepted  excuse  will  be  taken  as  a  resignation  which 
vacates  the  position. 

9  —  That  the  name  be  changed  from  board  of  state  charities  to  state 

board  of  charities  or  state  welfare  board. 

10  —  That  all  laws  be  repealed  which  give  it  or  its  executive  officer 

responsibility  for  or  control  over  the  state  social  welfare  con- 
ference. 

1 1  —  That  the  board  be  required  in  its  biennial  report  to  list  im- 

portant advance  steps  taken  in  its  field  during  the  two  preced- 
ing years,  major  needs  not  yet  attended  to,  and  a  concrete 
constructive  legislative  program. 

Reasons  for  abolishing  the  present  board  and  establishing  a  differ- 
ently constituted  board  include  these :  The  present  board  has  a  combina- 
tion of  duties,  inspectional,  advisory  and  administrative,  of  which  the 
administrative  duties  have  taken  much  the  greater  part  of  its  time  and 
interest.  Its  inspectional  and  advisory  functions  have  ebbed  to  a  low 
point.  If  the  administrative  functions  were  taken  from  it  and  if  it  were 
required  to  do  iuore  by  way  of  inspection  and  recommendation  it  would 
be  extremely  difficult  for  it  to  shake  off  the  bonds  of  a  few  and  the  habits 
which  have  become  adapted  to  its  administrative  duties. 


ON    ADMINISTRATIVE   REORGANIZATION  525 

In  the  calendar  year  1919  the  executive  officer  of  the  board  spent  81 
days  all  told  on  out  of  Columbus,  Ohio,  inspectional  work  and  confer- 
ences :    Of  these  days 

30  at  and  for  state  institutions ; 

19  at  and  for  county  and  city  institutions; 

14  on  the  Cincinnati  state  conference  of  which  the  secretary  of  this 
board  is  secretary; 

18  at  other  conferences  in  different  parts  of  the  state  with  individ- 
uals or  groups. 

Out'-Jde  of  the  state  attending  two  national  conferences  and  one  state 
conference  he  spent  19  days  or  over  60%  as  much  time  out  of  the  state 
as  in  visiting  state  institutions,  the  same  time  as  in  visiting  county  and 
city  institutions,  and  more  time  than  in  conference  with  local  groups.  If 
we  subtract  14  days  given  to  organizing  the  state  conference  from  the 
total  days  spent  out  of  Columbus  in  Ohio  there  remains  67  days  or  parts 
of  days  given  to  field  inspection  and  conferences  or  27%  of  the  working 
days  in  the  year  after  subtracting  all  Sundays  and  holidays  and  three 
weeks  more  for  sickness  and  indisposition. 

By  months  these  days  or  parts  of  days  away  from  the  office  for 
Ohio  work  other  than  the  state  conference  ran  as  follows  :  8 — 4 — 4 — 3 — 
7 — 4 — 8 — 4 — 6 — 2 — 10 — 7 — 67. 

A  similar  detailed  analysis  of  visits  by  the  board  shows  that  with  the 
exception  of  investigation  into  the  Dayton  hospital  at  the  request  of  the 
governor  the  board's  visitation  was  practically  nill.  The  Dayton  inves- 
tigation took  six  days.  The  hospital  had  to  pay  $25  for  stenographic 
notes  for  a  long  examination  that  was  not  necessary  at  all.  The  facts 
in  the  case  were  promptly  admitted ;  the  acting  superintendent  during  the 
absence  of  the  superintendent  on  war  duty  had  accepted  from  a  local 
physician  pay  for  giving  an  anaesthetic  during  operations  upon  insane 
patients ;  no  attempt  was  made  to  conceal  the  fact ;  instead  a  protracted 
investigation  took  time  of  the  institution  management  and  the  state  board 
of  charities.  Instead  of  penalizing  the  institution  further  by  exacting  the 
cost  of  stenographic  service,  a  complete  report  might  have  been  made  in 
a  couple  of  hours. 

The  fact,  however,  that  what  is  considered  mal-practice  or  unpro- 
fessional practice  could  have  gone  on  a  couple  of  years  with  a  board 
member  living  in  Dayton  who  might  have  established  the  facts  by  one 
visit,  emphasizzes  the  almost  complete  disappearance  of  board  responsibil- 
ity for  visiting  institutions. 

The  minutes  of  the  welfare  department  indicate  a  high  percentage  of 
attendance  of  the  board  at  board  meetings  and  of  those  rnembers  in  the 
welfare  committee  at  welfare  meetings.  For  example,  of  a  possible  at- 
tendance of  210,  the  absence  total  38  or  less  than  20%.  A  more  sig- 
nificant fact  is  that  the  board  members  not  on  the  welfare  department 


526  REPOKT  OF   JOINT  LEGISLATIVK   COMMITTI^E 

have  not  been  receiving  current  information  with  respect  to  that  depart- 
ment. 

ITnfortunately  there  has  been  no  compensating  attention  by  the 
present  board  to  the  larger  problems  which  should  head  up  in  constructive 
proposals  for  legislation. 

Of  course  members  of  the  present  board  might  find  it  easy  to  re- 
adjust their  attitude  and  practices  to  duties  that  involve  no  administrative 
departments  whatsoever.  They  might  call  for  a  more  aggressive  role  in 
investigation  of  state  institutions,  the  study  of  state  needs  and  the  making 
of  actual  recommendations  to  the  governor,  legislature  and  the  public. 
But  the  governor  should  be  left  free  to  select  men  and  women  without 
prejudice  because  of  present  membership  on  the  board. 

The  reason  for  transferring  the  two  administrative  departments 
to  the  director  of  welfare  administration  is  stated  above  and  also  in  the 
section  on  the  board  of  administration. 

Suggestions  that  dififerent  interests  be  frankly  represented  in  this 
board  needs  explanation.  It  will  be  said  that  there  is  danger  that  the 
person  appointed  to  be  interested  in  the  insane  will  not  be  interested  in 
reformatory  problems,  that  the  chairman  of  children's  work  in  counties 
and  industrial  schools  will  be  deaf  and  blind  to  appeals  for  the  feeble- 
minded and  epileptics,  that  the  member  appointed  to  press  Ohio's  correc- 
tional needs  will  not  want  to  attend  a  board  meeting  at  a  county  children's 
home  or  a  state  hospital  of  the  insane.  These  fears  are  v/ell  founded. 
If  the  governor  is  careless  and  not  watchful  it  will  be  very  easy  for  a 
board  of  five  members  each  detailed  to  press  some  special  set  of  needs 
to  become  quite  as  perfunctory  as  a  board  of  five  chosen  for  their  general 
interest. 

The  advantage  of  having  special  interests  represented  in  any  board 
whose  business  it  is  to  analyze,  criticize  and  recommend  include  these; 
interest  in  preventive  work  with  respect  to  insanity,  feeble-mindedness, 
crime,  poverty  or  other  disability  should  be  militant,  not  passive  or  con- 
ciliatory. Unless  special  interest  is  assured  there  is  danger  that  the  board 
will  lack  desire  for  information  and  the  intensity  of  feeling  which  alone 
will  press  needs.  Progress  in  institutional  development  calls  for  progress 
in  many  kinds  of  non-institutional  work  that  will  keep  people  out  of  in- 
stitutions. Special  pleaders  are  needed  in  this  field.  Only  by  having 
a  representation  of  special  interests,  by  frankly  calling  special  leaders  to 
leadership,  can  Ohio  in  part  make  up  for  what  it  lost  in  the  way  of 
humane  interest  and  citizen  co-operation  in  institution  management  when 
it  abolished  special  boards. 

Finally  the  state  needs  a  composite  and  balanced  point  of  view  in  its 
search  for  information,  in  its  watch  over  institutional  management  and 
in  its  program  for  legislation.  Such  a  composite  and  balanced  point  of 
view  it  will  be  easier  to  secure  more  readily  from  having  five  special 


ON    ADMINISTRATIVE    REORGANIZATIOI^  5^7 

interests  present  their  cases  than  from  having  five  members  who  are  at- 
tempting to  be  judicial  and  non-partisan  with  respect  to  each  special  need. 

The  arguments  fairly  advanced  against  having  special  interests  on 
administrative  boards  do  not  apply  here.  In  the  first  place.  Ohio  long  ago 
decided  against  administrative  boards  for  institutions,  and  it  is  widely 
believed,  especially  among  those  who  are  giving  sustained  attention  to 
welfare  work,  that  it  should  substitute  a  single  director  for  a  four- 
headed  board  of  administration.  In  the  second  place,  special  interests 
have  not  the  same  reason  for  compromising  and  for  considering  one 
another's  feelings  when  urging  improvements  and  when  criticizing  de- 
ficiencies as  they  have  when  under  the  necessity  of  taking  action  on  an 
administrative  board. 

Future  interest,  rather  than  past  interest,  in  the  field,  is  suggested 
for  specification  in  the  law  for  two  reasons :  First,  it  will  seldom  happen 
that  a  governor  will  select  for  special  interest  in  the  feeble-minded  a  per- 
son who  knows  nothing  about  the  problem  of  the  feeble-minded  and  has 
never  expressed  any  interest  in  it.  Secondly,  should  occasion  arise  when 
proved  courage,  vision,  power  of  analysis,  stick-to-it-iveness  would  be  of 
greater  importance  than  past  experience  in  a  given  field,  the  governor 
should  be  free  to  make  an  appointment  with  an  eye  single  to  future 
service. 

For  one  term  at  a  time  and  for  legal  prohibition  on  a  member  suc- 
ceeding himself  there  are  several  reasons.  There  are  all  the  reasons 
mentioned  in  the  sectional  report  on  the  voluntary  boards.  If  the  member 
may  not  succeed  himself  there  are  those  who  would  prefer  seven  members 
rather  than  five.  The  smaller  number  is  suggested  here  because  the  board 
should  be  active;  each  member  should  feel  the  pressure  of  responsibilities 
and  opportunities  upon  his  shoulders ;  and  the  board  should  realize  that  it 
will  accomplish  more  by  using  other  individuals  and  agencies  —  by  acting 
as  a  clearing  house  —  than  it  can  accomplish  with  its  own  eyes.  In  the 
fields  of  charities  and  corrections  the  ex-member  renders  often  more  im- 
portant service  in  educating  the  public  than  he  rendered  while  having  of- 
ficial conection.  It  is  also  true  in  ihis  field  that  there  is  a  strong  tendency 
among  voluntary  trustees  to  assume  proprietorship  in  the  right  to  suggest 
and  attitude  of  resentment  if  urged  to  go  faster.  This  is  the  wrong  at- 
titude for  a  board  of  state  charities.  Having  only  one  term  at  a  time 
will  discourage  such  an  attitude. 

Another  reason-  for  a  short  term  of  five  years  is  that  most  men  and 
women  will  do  more  constructive  work  in  five  years  than  they  will  do  in 
seven  in  such  a  position.  Knowing  that  their  time  is  limited  they  start 
earlier  and  keep  up  a  better  pace. 

Nor  should  it  be  forgotten  that  the  span  of  memory  as  to  policy 
that  is  represented  in  a  board  of  five  at  a  particular  time  is  almost  ten 
years,  —  the  oldest  member  going  out  has  his  own  five  years  and  what- 


528  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

ever  was  handed  to  him  by  a  board  member  who  had  been  in  four  years 
when  he  arrived. 

If  poHtical  affiHation  or  behef  is  not  mentioned  in  the  law  and  if 
the  number  of  one  pohtical  group  is  not  limited,  will  governors  bring 
this  service  into  politics  by  filling  all  vacancies  with  members  of  their 
own  party?  Ohio's  experience  shows  that  no  institution  is  taken  out  of^ 
politics  by  dividing  offices  between  two  parties.  Experience  everywhere 
shows  that  there  is  no  surer  way  of  keeping  institutions  and  services  in 
politics  than  to  specify  bi-partisan  management  in  the  law.  If  no  men- 
tion is  made  of  politics  Ohio's  governors  will  tend  to  live  up  to  the  state's 
expectation  of  them  and  will  tend  to  name  men  and  women  for  services 
which  they  can  render  the  state  rather  than  for  services  already  rendered 
to  political  parties. 

To  require  a  board  to  hold  eight  meetings  a  year  away  from  Co- 
lumbus and  at  different  institutions  will  seem  a  hardship  only  to  those 
persons  who  are  not  interested  in  the  problems  and  opportunities  of  this 
board,  or  to  others  who  have  a  worn  idea  of  how  such  a  board  can  help 
Ohio.  If  a  board  of  state  charities  is  going  to  be  limited  in  its  knowledge 
of  institutions  to  what  paid  employees  tell  it  at  meetings  in  Columbus 
there  is  no  special  reason  for  having  such  a  board;  it  would  be  just  as 
well  and  for  many  reasons  better  to  rely  upon  paid  visitors  entirely  and 
to  keep  the  line  of  communication  open  between  them  and  the  executive. 
Anyone  who  dislikes  the  thought  of  eight  visits  to  eight  different  insti- 
tutions a  year,  or  whose  business  would  not  permit  it,  will  serve  the  state 
better  by  staying  off  this  board  than  by  serving  on  it. 

Dropping  a  board  member  for  non-attendance  will  not  prove  a  hard- 
ship and  will  not  lose  valuable  service.  The  suggestion  is  that  any  mem- 
ber who  stays  away  twice  without  writing  an  excuse  that  is  accepted  will 
be  considered  to  have  sent  in  his  resignation.  The  most  popular  and 
most  regularly  attended  men's  club  in  the  country  will  drop  a  member 
for  acceptable  absences,  a  rule  that  keeps  people  out  of  membership  that 
do  not  want  the  fellowship.  Excusing  an  absence  for  reasons  that  do  not 
indicate  a  waning  interest  leaves  open  ajl  of  the  between  meeting  methods 
of  expressing  interest  and  keeping  interest  alive  by  interim  reports  and 
correspondence. 

The  suggestion  that  the  name  of  this  board  be  changed  may  at  first 
seem  least  important  of  all.  Names  of  state  services,  however,  do  affect 
attitudes  of  state  officers  and  the  public.  The  present  name  board  of 
state  charities  does  not  by  implication  include  the  county  and  other  child 
welfare  agencies  to  which  the  present  board  gives  the  greater  part  of 
its  attention,  nor  does  the  present  name  suggest  prevention,  public  edu- 
cation, constructive  legislation  which  should  be  the  most  important  of  its 
duties. 

Two  alternative  names  are  a  little  better;  if  your  committee  asked 
for  suggestions  perhaps  a  much  better  name  will  come  in  from  social 


ON    ADMINISTRATIVE   REORGANIZATION  5^9 

workers.  Certainly  the  state  board  of  charities  more  correctly  describes 
the  work  tlpan  board  of  state  charities.  The  second  name,  state  welfare 
board,  suggests  the  purpose  of  all  this  state  work,  namely,  public  welfare. 
A  tenth  recommendation  is  made  that  all  laws  be  repealed  which 
give  this  state  board  or  its  executive  officer  responsibility  for  or  control 
over  the  state  social  welfare  conference.  The  laws  should  be  retained 
which  encourage  publicly  supported  welfare  institutions  to  have  their 
agents  go  to  this  state  conference  at  public  expense. 

While  the  record  of  the  secretary  of  the  state  board  of  charities  in- 
dicates but  14  days  during  the  year  spent  on  the  Ohio  conference  a  record 
of  time  spent  in  preparing  for  and  getting  over  this  conference  will  show 
a  very  serious  diversion  of  energy  from  the  board's  inspectional  and  legis- 
lative work  to  managing  this  state  conference.  If  there  were  no  more 
fruitful  way  of  having  the  conference  managed  it  would  be  a  good  invest- 
ment to  give  the  entire  time'  of  some  state  employe  to  this  purpose.  It 
would  be  prodigal  of  Ohio  to  go  on  with  23  institutions  and  all  the 
social  work  involved  in  its  institutional  problems  and  the  preventive 
social  work  behind  those  problems  without  at  least  an  annual  conference 
of  social  workers. 

The  proposed  change  would  not  abandon  the  conference  but  would 
first  free  the  board's  secretary  from  responsibility  for  the  conference, 
and  would  secondly  free  the  whole  conference  from  obligation  to  limit  its 
aggressiveness  to  what  a  state  official  desires  or  is  able  to  do.  Morever, 
the  state  itself  ought  not  to  be  in  a  position  where  private  interests  may, 
through  a  program  committee,  practically  dictate  the  proposals  of  a  state 
board  and  its  secretary  to  a  state  wide  conference. 

Finally,  the  board  of  state  charities  ought  to  be  entirely  free  to  call 
regional  conferences  during  the  year  without  any  feeling  of  responsibility 
to  a  state  conference  which  in  the  nature  of  its  composition  will  always 
find  it  harder  to  concentrate  upon  one  need  at  a  time  and  will  never  find 
it  possible  to  meet  in  several  different  places  either  at  one  time  or  during 
the  year. 

The  last  concluding  suggestion  that  the  biennial  report  of  this  board 
contain  a  hst  of  advanced  steps  taken  plus  a  list  of  needs  not  yet  attended 
to  plus  a  definite  program  is  almost  self-explanatory.  As  Section  1358 
G.  C.  now  reads  the  board  is  required  biennially  "to  make  a  report  of  its 
proceedings  to  the  governor".  This  phase  should  be  amended  to  include 
"legislature  and  public".  The  contents  of  the  report  are  specified  as 
follows : 

"In  detail  a  statement  of  expenses  incurred,  officers  and  agents  em- 
ployed, the  conditions  of  state  institutions  under  its  control  and  such 
suggestions  as  it  deems  proper." 

This  wording  leaves  it  free  for  the  board  to  deem  it  proper  to  have 
no  suggestions  or  to  pass  on  only   a  few  of  its   suggestions,  to  speak 

34 


530  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

only  generally  of  conditions  of  state  institutions  and  to  say  nothing  about 
county  institutions. 

If  this  board  is  required  at  the  end  of  a  two-year  term  to  publish 
a  constructive  program  for  the  state  and  to  specify  wherein  progress  has 
been  made  and  where  not-yet-nceds  remain,  it  will  find  it  necessary 
to  carry  on  a  far  more  informing  and  interesting  publicity  during  the 
two  years.  While  improvements  in  publicity  do  not  call  for  changes  in 
organization  they  do  call  for  an  expression  of  surprise  that  where  so 
much  remains  to  be  done  and  where  so  much  is  being  done  the  Ohio 
board  of  state  charities  has  given  so  little  information  and  stimulus  to 
Ohio  officials  and  Ohio  public  interest  in  welfare  work. 


OPPORTUNITIES  FOR  THE  OHIO  BOARD  OF  ADMINIS- 
TRATION THAT  DO  NOT  REQUIRE 
REORGANIZATION 

By  WILLIAM  H.  ALLEN  and  ROBERT  ROSENBLUTH 


The  studies  which  led  to  suggestion  of  a  single  headed  efficiency 
administrator  instead  of  a  four  headed  board  brought  to  light  the  need 
for  many  advanced  steps.  While  it  is  true  that  it  will  be  easier  for  a 
director  of  welfare  administration  chosen  for  his  ability  to  analyze,  de- 
cide and  act  promptly  and  competently,  it  is  also  true  that  many  of  these 
steps  can  be  taken  by  the  present  board.  If  the  present  board  is  con- 
tinued, it  should  be  expected  by  the  governor  and  the  public  to  take  such 
steps. 

EDUCATIONAL   AND  RECREATION  AI.  SUPPLIES 

For  twenty  odd  institutions  only  a  little  more  than  $4000  was  spent 
in  the  year  1918  for  educational  and  recreational  supplies.  While  it  is 
true  that  increased  educational  efifort  does  not  exclusively  or  even  mainly 
depend  on  expenditure  for  supplies,  this  very  small  amount  shows  a 
woeful  lack  of  proper  emphasis  upon  this  need. 

Ability  of  the  penitentiary's  chaplain  to  secure  private  contributions 
of  ten  thousand  volumes  indicates  a  public  desire  to  co-operate.  Such 
public  co-operation,  however,  has  not  been  generally  sought  either  by  oral 
statement  or  written  reports  of  institution  heads  and  their  superiors,  the 
board  of  administration. 

TTIE    ANNl^'\L    REPORT 

The  latest  report  available  was  for  the  year  1917-1918.  It  has  313 
pages,  mostly  of  intricate  statistics.  These  figures  are  all  needed  some- 
where. They  are  of  little  help  in  an  annual  report  unless  there  is  an 
interpretation  and  comparison  of  them,  which  is  here  lacking.  Wherever 
there  is  such  interpretation  the  figures  are  not  needed.  The  auditor  ol 
state  should,  as  suggested  in  various  reports,  be  expected  to  audit  claims 
and  reports  of  operation  which  would  call  for  verifying  interpretations 
and  comparisons  without  having  the  details  included  in  a  public  report. 

The  lack  elsewhere  mentioned  of  opportunity  for  the  institution 
head  to  record  needs  and  advanced  steps  is  thrown  into  bold  relief  by  the 
pages  and  pages  of  statistics  about  beans,  —  kidney,  lima,  navy  — in 
the  year  1918  with  per  capita  comparisons  .with  1917,  1916  and  1914- 

The  cost  of  maintenance  as  given  is  misleading  and  is  dififerent  in 
different  places.    For  example,  the  per  capita  expenditure  at  Athens  state 

531 


532  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

hospital  is  given  in  table  i,  page  i8  as  $200.20.  Later  in  table  3,  page  51, 
the  net  per  capita  for  all  purposes  figures  out  $164.81.  On  the  next  page, 
personal  service  and  maintenance  combined  total  $200.20.  Two  pages  for 
itemization  of  accounts  yields  $191.70  (after  subtracting  credits  of  $45.48 
from  total  debits  of  $237.18).  Finally  in  the  profit  and  loss  account  on 
page  92,  the  net  per  capita  is  still  further  reduced  to  $164.81. 

Which  of  these  various  tables  shall  be  used?  An  analysis  of  the 
figures  shows  that  none  of  them  is  correct,  but  that  the  state  spent  on 
maintaining  this  institution  $237.18.  It  got  back  from  the  institution 
through  various  articles  raised  $50.41  per  capita  leaving  the  net  money 
cost  to  the  state  of  $186.77,  ^lot  counting  interest  or  investment  in  land. 

This  is  misleading  enough  if  only  one  institution  is  thought  of.  The 
more  serious  trouble  is  that  these  figures  are  the  basis  of  comparison  for 
institution  with  institution.  They  cannot  now  be  used  to  test  efficiency 
or  to  locate  extravagance  because  in  different  institutions  they  are  com- 
paring dififerent  things. 

As  the  record  stands  Athens  hospital  with  its  big  farm  and  actual 
money  received  from  the  state  costs  63c  more  per  capita  than  the  Cleve- 
land hospital  and  $16.03  more  than  the  Long\new,  both  of  which  are 
practically  without  farms. 

Because  these  supposedly  comparable  figures  are  known  at  head- 
quarters not  to  be  actually  comparable,  no  use  has  been  made  of  such 
facts  as  that  the  penitentiary  with  over  two  thousand  able-bodied  men 
is  showing  a  net  per  capita  cost  of  almost  $60  more  than  the  Athens  Hos- 
pital and  almost  $70  more  than  the  Cleveland  hospital  while  the  reform- 
atory at  Mansfield  with  its  sixteen  hundred  able-bodied  men  is  charged 
in  this  report  with  a  per  capita  cost  almost  $59  larger  than  the  Athens 
hospital  for  the  insane  and  $59  larger  than  the  Cleveland  hospital  for 
the  insane. 

The  bad  effects  of  such  reporting  include  these : 

I  —  It  encourages  extravagance,  particularly  in  institutions  with 
large  farms.  At  market  prices,  for  example,  wc  see  food 
per  capita  at  Athens  with  a  farm  was  $100.55  while  at  Cleve- 
land and  Longview  in  cities,  it  was  $84.06  and  $95.40. 

2 —  It  prevents  easy  discovery  of  faults  in  organization  or  expendi- 
ture. 

3  —  It  shows  no  real  cost  on  which  might  be  predicated  a  readjust- 

ment of  proper  charges  to  individuals  or  to  counties  for  sup- 
port of  patients. 

4  —  In  case  of  manufacturing  industries,  it  understates  costs  and 

prevents  the  state  from  charging  all  that  its  products  actually 
cost. 

5  —  It  does  not   disclose  which   industries   ought  to  be  extended, 

installed,  maintained  or  discontinued,  which  is.  of  course,  of 


ON   ADMINISTRATIVE  REORGANIZATION  533 

the  Utmost  importance  in  the  direction  of  capital  in  money 
and  men. 

In  all  cost  accounting  it  is  obvious  that  all  costs  ought  to  go  into 
the  accounts,  which  means  that  farming  should  be  considered  as  a  manu- 
facturing industry  and  interest  of  the  capital  invested  and  evaluation 
of  the  time  put  in  should  go  into  the  cost  of  production.  Secondly  in 
manufacturing  industries  all  costs  should  include  the  money  paid  to 
inmates. 

The  need  for  such  steps  is  admitted  by  the  management  which  also 
admits  that : 

1  —  All  statements  on  manufacturing  industries  have  failed  thus 

far  to  include  complete  cost. 

2  —  For  the  first  time  interest  on  investment  is  included  in  1920. 

3  —  Prisoners'   compensation   and    the    cost   of    guards    over   men 

while  at  work  have  not  been  included. 

4  —  At  farms  cost  statements  have  not  included  interest  on  lands. 

5  —  Heretofore  moves  with   respect  to  manufacturing  have  been 

made  on  the  basis  of  general  rather  than  exact  information, 
both  when  deciding  what  industry  to  take  up  and  when  fixing 
cost. 

6  —  Where  such  method  is  used,  it  is  inevitable  that  some  industries 

will  be  introduced  which  are  not  profitable  and  that  other  more 
desirable  industries  from  the  standpoint  of  both  profit  and 
reformation  will  be  included. 

7  —  The  expansion  of  industry  including  extension  of  farm  lands 

is  thus  unnecessarily  retarded. 

8  —  Arrangements  unfavorable  to  the  state  are   inevitably  made, 

for  example,  if  prisoners  should  be  worked  on  the  highways 
for  which  the  United  States  pays  half  the  cost,  Ohio  by  its 
present  method  would  not  be  able  to  put  in  all  that  it  costs, 
or  again  where  printing  is  done  for  a  state  college  there  is  now 
inevitable  undercharging. 

9  —  The  price  charged  to  counties  and  individuals  might  be  re- 

adjusted to  fit  present  costs. 

PURCHASES 

Next  to  food,   fuel  is  the  largest  item  of  expense. 

At  the  Columbus  state  hospital  for  the  insane  there  is  a  daily  coal 
consumption  of  58  tons  of  coal  a  day.  Even  in  Columbus  where  there 
are  several  different  institutions,  separate  contracts  are  awarded  for  each 
institution  and  offered  to  different  companies. 

There  is  no  testing  of  samples  from  each  car  on  arrival  at  institu- 


534  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

tions.  The  reason  given  for  this  is  that  the  University  charges  $6  for 
each  sample  tested  which  charge  it  is  elsewhere  recommended  should  be 
discontinued  and  a  new  rate  established  so  that  the  institutional  manage- 
ments will  have  no  excuse  for  not  purchasing  coal  by  specification  and 
test. 

PROBATION   AND  PAROLE 

In  a  brief  report  on  the  board  of  clemency  several  suggestions  have 
been  made  as  to  the  part  of  parole  which  is  under  its  jurisdiction,  namely, 
the  work  in  the  penitentiary  and  the  two  reformatories. 

Without  any  change  in  organization  the  records  for  parole  and  the 
method  of  handling  the  agents  can  be  brought  up  to  entirely  modern 
standards. 

/  Now  the  records  are  not  adequate ;  the  board  of  clemency  does  not  ex- 
ercise sufficient  jurisdiction;  the  work  for  the  two  juvenile  institutions  is 
not  subject  to  supervision  or  study  by  the  board  of  clemency  and  receives 
only  perfunctory  attention  from  the  board  of  administration.  The  parole 
officers  might  be  given  districts  which  will  eliminate  unnecessary  travel 
and  unnecessary  loss  of  time  and  money  and  greatly  increase  time  avail- 
able for  actual  parole  work. 

The  board  of  clemency's  construction  of  the  present  state  law  costs 
at  least  one  month  more  than  is  necessary.  The  board  might  hear  many 
of  its  cases  far  earlier.  No  principles  or  minimum  essentials  have  been 
worked  out  except  certain  general  limits  of  time  which  would  bring  cases 
up  for  parole  far  earlier.  More  study  of  the  case  after  entering  the  in- 
stitution would  save  time.  The  board  and  paroling  officers  might  review 
the  charges  and  character  even  thirty  days  after  an  offender  enters  the 
institution.  The  time  of  probable  service  could  then  be  indicated.  A 
further  minimum  might  be  set  in  case  the  standard  for  department  work 
and  educational  progress  were  exceeded.    An  early  review  could  follow. 

The  board  of  administration's  parole  investigation  ought  to  be  so 
organized  that  large  numbers  of  cases  could  easily  be  taken  care  of  on 
probation  without  coming  to  the  institution.  This  should  be  taken  up 
promptly  and  with  courts. 

The  law  is  wrong  which  declares  a  man  subject  to  probation  if  a 
judge  decides  to  keep  him  out  of  reformatory  or  penitentiary  but  makes 
it  impossible  even  for  the  board  of  clemency  to  let  him  out  within  a  year 
if  the  judge  happens  to  send  him  to  a  penitentiary. 

The  penitentiary  and  men's  reformatory  have  now  three  field  officers 
each;  women's  reformatory  one.  It  is  impossible  for  three  officers  to 
do  real  parole  work  with  931  men  as  at  the  penitentiary  and  2536  at  the 
reformatory.  By  agreement  the  six  field  officers  for  the  penitentiary  and 
men's  reformatory  have  been  given  six  districts.  Thus  the  parole  officers 
for  the  reformatory  are  doing  parole  work  for  both  reformatory  and 
penitentiary  inmates  on  parole,  although  themselves  directly  accountable 
only  to  the  reformatory  superintendent.    The  same  is  true  of  the  peniten- 


ON    ADMINISTRATIVE    REORGANIZATION  535 

tiary  parole  officers,  who  have  some  penitentiary  cases  and  some  reforma- 
tory cases  while  remaining  accountable  directly  to  the  warden.  At  the 
women's  reformatory  the  position  of  field  officer  is  vacant  and  the  parole 
work  is  done  by  the  superintendent  and  her  husband.  By  similar  volun- 
tary agreement  it  would  be  possible  to  co-ordinate  the  parole  work  of 
the  county  courts,  industrial  schools,  the  reformatories,  and  the  peniten- 
tiary, so  that  traveling  would  be  reduced  to  a  minimum. 

While  unofficial  co-operation  of  various  agencies  is  used,  there  is  no 
definite  knowledge  of  where  it  is  working  well  and  where  it  is  not  work- 
ing well.  There  is  no  adequate  central  direction.  There  is  generally  too 
little  personal  contact  with  the  parole  case. 

COMMITMENTS    TO    INSTITUTIONS 

The  records  furnished  with  commitments  are  usually  inadequate 
and  give  too  little  specific  information  of  value.  Even  in  the  case  of 
juveniles  where  court  probation  officers  have  made  investigations  too  little 
of  this  information  comes  to  the  state  institution.  In  the  case  of  the 
penitentiary  and  reformatories  the  parole  system  has  done  away  with  the 
former  unfairness  where  the  old  offender  served  a  shorter  term  than  the 
new  ofifender,  but  even  now  there  is  practically  no  information  based  on 
scientific  results. 

The  board  relies  largely  on  what  it  feels  after  talking  with  the  person 
considered.  While  it  is  right  that  the  board  actually  sees  the  person 
wishing  parole,  this  seeing  ought  to  follow  definite  records  of  work  done 
and  of  education  taken.  Not  enough  men  are  being  worked  out  on 
honor;  not  enough  additional  credit  is  allowed  for  making  good  while 
on  honor  so  that  the  ordinary  minimum  time  can  be  reduced. 

At  the  women's  reformatory  a  much  larger  percentage  of  women 
are  out  on  honor  than  at  the  men's  and  the  management  feels  the  plan 
works  successfully.  One  superintendent  said  when  asked  how  many 
he  could  put  out  on  honor  "that  depends  on  how  many  are  needed".  Of 
course  that  should  not  be  the  answer.  Every  person  worthy  of  being 
out  on  honor  should  be  out  and  the  state  should  manage  to  find  the  work. 
The  trouble  is  that  heretofore  no  official  body  has  been  studying  this 
problem  in  O'liio  or  methods  used  in  other  states. 

CARE    IN    INSTITUTIONS 

All  of  the  penal  institutions  are  overcrowded.  In  the  cases  of  the 
men's  penitentiary  and  reformatory  there  is  dangerous  use  of  two  men 
in  a  cell.  This  is  a  disgraceful  situation  because,  as  other  states  have 
shown,  it  can  be  easily  overcome  and  at  a  reduction  of  net  cost  to  the 
state.  There  is  not  now  work  enough  provided  in  the  institutions. 
There  is  almost  no  educational  direction  except  for  illiterates.  There  is 
no  claim  of  scientific  research  and  study  of  the  great  problems  involved 


536  RKPOKT  OF  JOINT  LEGISLATIVE   COMMITTEE 

in  caring  for  inmates  after  they  arrive  or  in  preventing  or  in  keeping 
them  out  of  state  institutions. 

Elsewhere  Mr.  Cummin  has  recommended  an  abandonment  of 
the  very  costly  nev\^  penitentiary  which  he  estimates  will  cost  over  ten 
million  dollars.  If  your  committee  considers  that  recommendation,  an 
additional  reason  for  abandonment  is  that  the  reformatory  is  far  more 
overcrowded  than  the  penitentiary  and  that  the  state  owes  a  much  greater 
obligation  to  first  offenders  than  to  repeaters.  It  were  reason  enough 
for  abandoning  the  plan  that  the  whole  theory  is  based  upon  past  practice 
and  not  upon  Ohio's  future  needs. 

It  is  suggested  that  there  be  a  rapid  but  accurate  survey  made  of 
the  basic  conditions  with  respect  to  penology.  The  survey  that  is  needed 
does  not  require  reorganization  although  it  would  be  more  apt  to  be 
made  by  a  director  of  welfare  administration  than  by  a  board  of  four. 
There  are  clerks  enough  and  officers  enough  to  make  a  continuous  study 
and  to  arrange  for  the  careful  analyzing  of  results  of  different  prac- 
tices, such  as  reducing  the  time  to  stay  in  the  institution  from  twelve 
months  to  eight  months  at  Mansfield. 

Another  study  can  be  made  largely  with  present  state  employees 
of  the  procedure  and  practice  in  the  county  courts  prior  to  sentencing; 
also  of  the  records  and  comments  of  judges  and  the  reports  of  probation 
officers.  Such  a  study  would  undoubtedly  show  that  much  greater  use 
of  probation  could  be  made  possible  if  probation  were  used  to  the  safe 
limit.  Neither  a  new  penitentiary  nor  a  new  reformatory  will  be  needed. 
In  such  a  study  the  big  brothers,  big  sisters,  boy  scouts,  and  a  number 
of  other  private  agencies  are  to  be  counted  as  resources  available  to  the 
state.  Another  big  question  is  whether  a  new  institution  ought  to  take 
care  of  penitentiary  overflow  or  provide  for  cases  halfway  between  pro- 
bation case  and  reformatory  case,  that  is,  an  indeterminate  sentence  for 
misdemeanants  which  'would  take,  for  example,  the  20%  of  those  at 
Mansfield  who  are  first  offenders. 

The  women's  reformatory  is  not  believed  to  be  necessary  by  the 
present  board  of  administration,  at  least  by  the  chairman.  If  it  is  now 
receiving  all  the  proper  cases  for  it  in  the  state  it  is  occupying  altogether 
a  too  expensive  location  and  plant,  involving  a  too  great  overhead  ex- 
pense. If  too  few  cases  of  the  right  kind  are  being  sent,  a  study  will 
locate  the  fault  and  publicity  will  help  correct  it.  Unless  there  are  more 
cases  of  this  kind,  and  nothing  but  study  of  the  cities  and  counties  will 
show  clearly,  the  women  could  be  provided  for  easily  in  connection  with 
the  new  prison  farm  in  the  penitentiary  and  the  present  Marysville  site 
made  available  for  the  school  for  the  deaf  and  dumb  as  members  of 
the  board  of  administration  recommend.  It  is  well  within  the  powers 
of  the  board  as  it  is  at  present  organized  to  start  and  finish  the  study 
necessary  to  answer  these  questions. 


ON    ADMINISTRATIVE   REORGANIZATION  537 

For  all  persons  committed  to  reformatory  or  pre-reformatory  insti- 
tution or  to  penitentiary,  there  should  be  the  type  of  study  which  the 
bureau  of  juvenile  research  is  organized  to  make  for  juveniles.  The 
present  head  of  this  bureau  is  entirely  competent  to  direct  study  of 
all  inmates  of  reformatories,  industrial  schools  and  penitentiary.  When 
they  arrive  and  before  they  are  paroled  such  a  study  should  be  considered 
a  minimum  essential  whether  or  not  there  is  reorganization. 

AVOIDING  THE  DOUBLE  CELL 

Largely  because  of  double  celling  in  the  penitentiary  Ohio  is  em- 
barking upon  an  expenditure  that  involves  ten  million  dollars.  Yet  there 
is  nearly  twice  as  much  double  celling  of  more  innocent  cases  and  re- 
formable  cases  at  Mansfield.  Without  waiting  to  reorganize  the  board 
it  is  possible  to  build  cheap  accommodations,  dormitory  faciHties,  and 
barbed  wire  stockades  if  necessary  to  take  care  of  the  excess  number  of 
inmates.  These  facilities  or  barb  wire  stockades  can  be  located  at  points 
where  there  is  enough  work  of  a  suitable  nature  to  cover  the  expense 
of  personnel  necessary  to  direct  the  work  and, to  guard  the  prisoners. 
Whatever  was  good  enough  for  our  American  soldier  boys  is  more  than 
good  enough  for  men  who  have  violated  the  law.  One  type  of  work 
which  lends  itself  to  these  purposes  is  wrecking,  as  of  United  States 
camps;  which  can  properly  be  done  by  inmate  labor.  In  some  cases 
the  camp  lands  might  be  secured.  The  state  brick  plant  can  be  extended 
to  include  150  more  men  from  the  penitentiary.  '  For  some  time  to 
come  Mr.  Cummin  estimates  many  gangs  could  be  employed  in  crushing 
rock  for  Ohio's  big  road  program. 

SCHOOLING  IN   PRISONER'S  TIME 

Without  waiting  for  reorganization  both  the  productive  work  and 
the  school  work  can  be  so  modified  that  every  able-bodied  inmate  over 
16  years  of  age  in  a  state  institution  will  do  a  full  eight  hour's  work. 
Many  opportunities  can  be  found  for  meeting  shortage  of  labor  supply. 
Experience  elsewhere  shows  that  even  labor  unions  will  meet  correc- 
tional officers  half  way  when  evidence  is  produced  that  the  use  of  prison- 
ers will  help  the  very  conditions  from  which  labor  makes  its  own  higher 
wages. 

Business  interest  will  help  obtain  the  information  necessary  to  tell 
what  profitable  lines  of  work  can  be  undertaken  through  prison  in- 
dustries. Now  many  inmates  go  without  a  full  day's  work  in  order  to 
attend  school.  Many  others  go  without  educational  direction  and  prog- 
ress in  order  to  attend  work. 

Night  schools  can  be  organized  and  directed  reading  and  study  can 
be  organized  on  a  plan  which  requires  that  certain  minimum  essentials 
for  each  individual  be  covered  before  he  will  be  considered  for  parole. 


538  REPORT  OF   JOINT  LEGlSLATIVli   COMMITTEE 

The  first  step  in  requiring  progress  by  each  individual  is  to  be  taken 
by  prison  officials.  The  use  of  that  step  depends  upon  cooperation  by 
the  board  of  clemency  which  should  work  out  a  plan  before  a  law  is 
passed.    These  steps  the  governor  can  require  without  any  other  changes. 

It  is  prodigal  for  a  state  with  four  thousand  able-bodied  prisoners 
in  its  charge  for  periods  running  from  eight  months  to  several  years  to 
fail  to  inculcate  the  habit  of  reading  and  study  in  leisure  time.  More- 
over it  also  loses  money  because  it  gives  up  the  productive  time  of  many 
hundred  able-bodied  inmates  so  that  they  can  remove  their  illiteracy  by 
attending  school.  Officials  claim  that  inmates  frequently  pretend  to 
illiteracy  in  order  to  avoid  work. 

Now  there  is  part  time  at  school  for  those  minors  who  have  less  than 
a  sixth  grade  education  and  for  all  illiterate  adults.  In  some  instances 
school  facilities  are  provided  up  to  the  eighth  grade.  The  teaching  for 
those  who  do  go  to  school  is  the  formal  class  work  of  the  elementary 
grades  and  with  elementary  textbooks  even  for  these  adults.  Too  often 
the  textbook  is  not  even  allowed  to  be  taken  out  of  the  classroom. 
Classes  are  very  large  and  actual  teaching  is  given  generally  by  inmates 
untrained  for  the  work.  There  is  no  objection  to  having  teaching  by  in- 
mates. On  the  contrary,  it  is  highly  desirable  for  the  sake  of  restoring 
men  to  a  normal  sense  of  obligation  that  they  be  taught  to  teach  wherever 
possible. 

The  problem  of  returning  these  inmates  to  normal  life  equipped  to 
remain  free  and  useful  citizens  is  the  real  task  of  penal  institutions.  If 
mere  safe  keeping  for  a  fixed  time  were  the  problem,  probation  shows 
that  for  an  overwhelming  majority  it  is  not  necessary  to  send  them  to  jail 
at  all.  Any  plan  which  compels  grownup  men  to  waste  their  leisure  time 
in,  hateful  idleness  and  isolation  is  working  contrary  to  the  purpose  for 
which  the  state  spends  so  much. 

Among  the  causes  which  bring  people  to  these  institutions  are  causes 
which  make  study  difficult  and  discourage  reasonably  diligent  obligation 
to  do  a  day's  work,  and  other  causes  which  make  impossible  the  enjoy- 
ment of  leisure  time  in  quiet  and  safe  ways  that  involve  little  expense. 
The  latter  is  perhaps  the  greater  fundamental  cause  of  delinquency. 

For  men  who  come  into  an  institution  because  they  failed  to  do  their 
day's  work  properly  there  is  but  one  hope,  the  definite  habit  of  work'  at 
the  ordinary  standards  of  efficiency  of  free  industrial  life  outside,  which 
today  means  an  eight-hour  day  of  productive  labor.  For  those  who  come 
from  inability  to  use  leisure  time  well  nothing  is  so  valuable  as  the  habit 
of  reading,  aided  by  other  enjoyment  in  which  institutions  can  easily  give 
practice,  such  as  music,  singing,  and  wholesome  games.  These  also 
should  come  as  they  do  in  normal  life  in  connection  with  nnd  after  a  full 
day's  work. 

The  habit  of  reading  is  (|uitc  different  from  ability  to  read  and  the 
habit  of  reading  is  absent  in  the  vast  majority  of  those  coming  into  ]ienal 


ON    ADMINISTRATIVE    RKORGANIZATION  539 

institutions.  If  one  looks  for  the  habit  of  purposeful,  connected  reading, 
it  is  almost  entirely  lacking.  Finding  it  hard  to  read,  that  is,  to  settle 
down  and  read  regularly,  is  the  common  condition  and  is  often  due  to  an 
excess  of  animal  spirits  or  poor  vision.  Yet  reading  is  the  easiest  habit 
to  inculcate.  As  boys  in  penitentiaries  say,  "not  hard  to  take,"  and  when 
acquired  it  provides  the  greatest  pleasure,  can  be  enjoyed  in  quiet  without 
expense  and  with  great  potential  use  so  that  when  prisoners  are  released 
this  habit  of  reading  will,  with  the  work  habit,  provide  very  strong  habit 
influence  to  keep  the  parole  or  keep  the  man  out  of  further  trouble. 

A  conscious  policy  can  easily  be  established  without  any  reorganiza- 
tion which  will  require  every  correctional  institution  to  start  developing 
the  habit  of  reading  and  making  it  a  condition  of  parole  and  release.  That 
it  can  be  done  is  proved  at  the  penitentiary  farm  where  Warden  Thomas 
says  that  about  one  hundred  colored  men  have  voluntarily  organized  an 
evening  class  for  study  with  evident  benefits  to  all. 

What  a  contrast  this  is  with  the  present  plan !  In  the  nlajority  of  cases 
only  a  few  get  a  chance  at  school.  How  that  chance  works  the  following 
statement  by  a  boy  of  21  shows:  He  claimed  when  he  entered  to  have 
finished  the  fourth  grade.  His  reading  was  fair,  spelling  fair,  writing 
fair,  could  add,  subtract,  multiply  but  could  not  divide.  He  was  assigned 
to  the  third  grade.  Thereafter  this  able-bodied  young  fellow  put  in  a 
half  day  in  regular  grade  work  with  the  very  same  texts  as  for  children 
nine  or  ten  years  old.  At  the  penitentiary  the  chaplain  has  been  doing 
much  to  overcome  such  personal  maladjustments.  In  the  women's  re- 
formatory nothing  is  being  done. 

The  kind  of  thing  that  can  be  done  at  once  is  to  scrap  all  of  the  pres- 
ent procedure  and  begin  educational  work  as  follows : 

1  —  Base  all  educational  work  on  evening  work  after  a  full  day's 

productive  work. 

2  —  Give  the  small  group  of  illiterates  and  backward  pupils  over 

16  at  night  the  present  continuation  class  group  teaching  but 
with  a  much  better  adapted  course,  with  methods  and  texts 
that  the  army  used  for  this  kind  of  adult  or  such  as  are  being 
used  in  the  best  night  schools.  Incidentally  the  cost  of  these 
texts  would  probably  be  very  slight  as  the  army  has  quantities 
to  dispose  of. 

3  —  Inmate  teachers  should  be  used  far  more  than  they  Are  used 

now,  and  they  should  be  given  the  necessary  individual  work 
and  supervision  to  train  them  for  teachers.  For  the  vast  ma- 
jority who  now  receive  no  educational  work  because  they  are 
able  to  read,  or  being  under  16  have  reached  the  sixth  grade, 
there  should  be  definite  direction  and  supervision  to  insure  the 
habit  of  reading.  This  means,  of  course,  a  different  examina 
tion  which  will  give  an  index  of  the  inmate's  capacity  to  read 


540  REPORT  OF  JOINT  LEGISLATIVK  COMMITTEE 

and  understand  and  the  type  of  reading-  which  he  can  more 
profitably  follow.  Such  an  examination,. however,  ought  to  be 
given  for  other  reasons  as  a  guide  to  the  state  in  an  intelligent 
correctional  policy. 

4 — Oi  all  a  minimum  amount  of  reading  calculated  on  the  pos- 
sibility of  two  hours'  time  every  evening  should  be  required. 
Selection  should  rest  largely  with  the  inmate,  but  after  he  has 
received  suggestion  and  advice.  The  reading  should  cover  a 
minimum  respecting  American  history  and  institutions  and 
should  also  be  related  to  his  work.  A  report  of  lOO  or  300 
words  might  be  required  on  all  books  with  credits  for  the  length 
and  character  of  the  report.  There  might  be  a  quarterly  ex- 
amination on  required  reading.  Current  events  could  be  taught 
,  through  a  four-minute  abstract  at  the  evening  meal,  the  in- 
mate being  required  to  make  a  note  on  return  to  his  head- 
quarters, or  of  course  a  small  summary  might  be  printed. 

5  —  Library  facilities  need  to  be  expanded  and  re-organized.  For 
this  work  there  are  inmate-aides  to  be  trained  and  methods  of 
crediting  to  be  provided.  Records  of  individual  progress 
should  be  kept.  Attainment  of  minimum  standards  should  be 
prescribed  and  should  in  all  cases  be  insisted  upon  before  the 
board  of  clemency  considers  parole.  The  only  exception  should 
be  men  excused  by  physicians  for  mental  deficiency  or  for 
physical  defects  that  will  not  permit  reading. 
If  Chaplain  Reed  with  his  own  overtime  has  been  able  to 
enlarge  the  library  to  over  ten  thousand  volumes,  almost  en- 
tirely by  voluntary  subscribers,  and  to  vitalize  the  use  of  it  to 
stimulate  reading  while  at  the  same  time  fostering  the  night 
school  at  the  prison  farm,  it  is  clear  that  very  extensive  results 
could  be  obtained  by  a  systematic  development  of  this  pos- 
sibility. 

MEDICAL  CARE  AND  SCIENTIFIC    f NVESTI CATIONS 

With  one  doctor  to  450  patients  at  the  various  state  hospitals  and 
with  one  doctor  at  Lancaster  for  1200  boys,  it  does  not  seem  unreasonable 
to  demand  more  medical  care  at  present. 

It  is  true  nevertheless  that  there  is  no  follow-up  work  just  now 
to  get  periodic  weight  gains;  no  inspection  as  in  the  Army  at  unknown 
times  which  at  institutions  should  come  at  least  once  a  month  to  look 
over  the  body  thoroughly  including  its  cleanliness  and  condition.  It  is 
well  known  that  certain  diseases  may  easily  develop  after  the  inmate's 
proof  of  health  on  first  examination.  Work  may  bring  back  recurrence 
of  venereal  diseases;  hernias  may  develop;  tuberculosis  and  skin  infec- 
tions may  start.  Now  it  is  not  even  certain  that  an  inmate  will  be 
examined  before  discharge. 


ON    ADMINISTRATIVE   REORGANIZATION  541 

Although  the  director  of  the  bureau  of  juvenile  research  has  the 
training  to  supervise  statistical  studies  of  many  kinds,  particularly  those 
relating  to  health' and  mentality,  his  service  has  not  been  used.  This 
whole  field  is  practically  neglected  in  spite  of  the  fact  that  in  twenty 
different  institutions  are  great  numbers  confined  for  large  periods  of 
time  under  constant  control  of  the  state  where  practically  every  factor 
affecting  their  lives  can  be  segregated,  analyzed,  watched  and  tested  for 
facts.  There  is  much  that  might  be  learned  for  the  safeguarding  of 
public  life  and  the  public  health  and  happiness  if  scientific  analysis  were 
organized.  This  does  not  call  for  any  change  although  it  will  probably 
not  happen  until  there  is  a  single  head. 

It  is  true  that  the  amount  of  money  allowed  for  medical  work  is 
grossly  inadequate.  It  is  also  true  that  the  board  of  administration  has 
had  the  facts  with  which  to  make  each  a  convincing  case  for  additional 
health  funds  but  has  failed  to  marshall  those  facts.  So  far  as  securing 
additional  funds  for  this  purpose  is  concerned,  there  seems  no  difference 
between  a  medical  member  and  an  engineering  member.  At  the  hospitals 
for  the  insane  are  many  men  who  are  eager  to  conduct  scientific  research. 
Some  notable  studies  have  been  made  and  some  are  in  progress.  For 
the  Dayton  hospital,  for  example,  some  three  hundred  different  patients 
have  had  surgical  operations  for  physical  causes  seemingly  remote  from 
mental  disease.  It  is  claimed  that  30%  of  these  cases  have  resuhed  in 
cures.  Your  field  agent  talked  with  a  woman  about  to  leave  this  hos- 
pital who  had  not  long  before  been  diagnosed  as  a  violently  and  in- 
curably insane  patient.  An  examination  showed  that  conditions  due  to 
the  birth  of  children  might  be  the  cause  of  her  mental  derangement.  • 
Her  husband  consented  to  the  operation.  She  was  apparently  restored 
to  complete  normality. 

Dentists  at  the  hospital  for  epileptics  have  in  specific  instances 
apparently  removed  completely  the  immediate  cause  of  epilepsy  and 
certainly  all  of  the  spasms  by  correcting  teeth  troubles.  Again  the  state 
dental  society  has  been  interested  in  making  studies  of  the  dental  hygiene 
conditions  in  state  institutions  and  will  be  glad  to  help  work  out  a  con- 
structive program  for  all  state  institutions. 

No  provision  has  been  made  at  headquarters  for  utilizing  this  kind 
of  interest.  Even  the  records  required  are  inadequate.  In  other  cases 
where  institution  heads  have  installed  records  essential  to  scientific 
study,  they  have  been  required  to  abandon  them.  At  the  penitentiary, 
the  records  of  work  and  earnings  are  kept  entirely  separate  from  the 
records  of  conduct  and  physical  condition  and  do  not  enter  into  the 
case  except  to  determine  the  pay  due  him  when  he  leaves  the  institution, 
when  he  is  considered  for  discharge  or  parole.  No  record  is  kept  of 
educational  progress  except  for  the  few  in  institutional  schools.  None 
is  kept  of  physical  progress.  Even  the  information  which  the  clemen  v 
board  elicits  at  the  time  of  seeing  men  up  for  parole  is  not  recorded. 


54-  REPORT  OF   JOINT   LEGISLATIVE   COMMITTEE 

In  the  field  of  insanity,  fceble-mindedness  and  epilepsy  the  records 
can  never  be  adequate  until  the  state  sees  that  facts  are  covered  with 
respect  to  home  conditions,,  ancestry,  etc.  Seeing  to  'this  does  not  re- 
quire organization,  but  will  be  furthered  by  it.  Other  changes  sug- 
gested  in  these  reports  would  make  it  probable  that  the  state  would  listen 
to  arguments  for  proper  facilities  if  they  were  made  by  responsible 
officers. 

FEEDING  OF  INMATES 

Standards  are  now  too  variable.  Too  much  is  left  to  the  taste  of 
institutional  heads.  The  annual  report  of  1918  shows  that  the  girls  at 
Delaware  were  receiving  three  times  as  much  butter  as  the  boys  at  Lan- 
caster. The  women  at  the  state  reformatory  who  are  performing  no 
labor  buy  enough  milk  so  that  they  can  have  butter  twice  a  day  while  the 
men  who  work  all  day  in  the  penitentiary  get  no  butter. 

The  present  method  of  dealing  with  the  institutions,  (comparing 
partial  cost  records)  will  never  reach  the  trouble.  In  one  case  an  in- 
stitution head  received  credit  for  a  long  time  because  his  cost  of  main- 
tenance was  low  and  was  later  found  to  have  been  grossly  underfeeding 
his  patients.  The  present  board  has  not  used  its  visits  or  visits  by  its 
inspectors  to  detect-  this  kind  of  thing  by  inspections  and  to  have  any 
questions  raised  by  a  comparison  of  records  answered  by  field  inspection.' 

UP.KEEP   OF   BUILDINGS 

The  condition  of  the  buildings  was  generally  good  although  many 
of  them  are  old  and  far  from  fire-proof.  The  present  board  knows  and 
the  committees  of  the  legislature  have  seen  that  these  buildings  are  not 
only  not  fire-proof  but  in  some  cases  are  fire  traps,  for  example,  the 
Dayton  hospital  for  the  insane.  While  buildings  are  unsafe  for  inmates, 
it  is  not  clear  that  the  board  need  spend  $133,000  for  an  agricultural 
exhibit  building  at  the  state  fair  grounds  unless  the  legislature  would 
appropriate  especially  for  it. 

The  present  method  of  not  requiring  or  permitting  institution  heads 
to  keep  telling  those  facts  over  and  over  again  so  that  the  public  cannot 
help  knowing  them  makes  the  appeal  a  closet  affair  between  the  president 
of  the  board  of  administration  and  the  budget  commissioner.  Now  and 
then  such  a  fact  gets  before  a  finance  committee  in  the  state  house  or 
when  visiting  the  institution.  Experience  everywhere  shows  that  finance 
committees  of  the  legislature  cannot  be  relied  u]wn  to  learn  enough  about 
and  see  clearly  such  facts.  The  stories  should  be  told  by  institution 
heads,  by  the  board  in  its  reports,  by  the  board  in  listing  its  needs  at 
budget  time  so  that  the  facts  will  get  out  whether  the  budget  connuissioner 
cares  to  report  them  or  not. 

It  is  true  that  now  funds  are  voted  to  the  board  of  administration 
unsegregated  for  repairs.  Many  new  buildings  and  extensions  have  been 
put  on  where  the  board  was  free  if  it  wished  to  repair  or  make  over  old 


ON    ADMINISTRATIVE    REORGANIZATION  543 

structures.  This  is  apt  to  happen  under  a  director.  The  best  cure  for 
that  does  not  require  reorganization,  namely,  requiring  institution  heads 
to  tell  what  the  public  is  risking  when  it  neglects  to  make  needed  repairs. 
Another  cure  is  more  exacting  and  more  frequent  audits. 

Where  old  buildings  cannot  be  disposed  of,  more  rigid  fire  prevention 
and  inspection  is  possible.  For  example,  an  upper  floor  at  Lancaster 
in  an  old  type  building  was  without  a  fire  extinguisher.  The  girls  in- 
dustrial school  was  found  to  lack  extinguishers,  to  have  hose  that  could 
not  have  been  run  out  quickly  without  kinking,  and  to  have  dispensed 
with  fire  drills. 

At  Lancaster  bathing  and  toilet  facilities  are  so  inadequate  that  the}- 
are  being  extended.  At  the  Girls'  industrial  school  the  water  should  be 
softened  even  at  the  cost  of  saving  somewhere  else  or  at  the  cost  of  a 
specific  appropriation  for  that  purpose. 

INSTITUTIONAL  DISCIPLINE 

The  discipline  of  a  number  of  institutions  was  found  to  be  good, 
taking  into  consideration  the  facilities  available  and  traditions  of  the 
institutions.  The  state  board  of  public  instruction  reported  that  the 
discipline  at  the  Girls  Industrial  School  was  of  a  high  order.  At  both 
the  boys'  and  girls'  school  your  reporters  felt  that  the  discipline  was  too 
rigid  and  that  the  modern  principles  of  self-government  and  pupil 
initiative  should  be  introduced.  At  Lancaster  there  is  military  discipline 
with  continuous  marching  and  rigidity  and  silence  at  two  details  a  day 
where  while  coming  from  and  going  to  school  or  work  boys  must  stand 
in  the  large  basement  waiting  to  be  counted.  Other  institutions  assign 
their  details  in  other  ways  and  find  it  advantageous  to  relax  this  rigidity. 
At  the  time  of  our  visit  there  was  a  case  of  "nerves"  at  Mansfield  and 
a  generally  hectic  condition,  due  to  inadequate  salaries,  insufficient  force, 
and  frequent  turn-over  of  employees. 

INSTITUTIONAL    WORK 

Where  work  was  going  on  it  was  being  done  in  a  satisfactory  way 
as  to  spirit  prevailing,  attention  to  work  and  output.  There  is,  however, 
nowhere  near  enough  work,  particularly  in  the  penitentiary,  at  the 
women's  reformatory  at  Marysville  and  the  men's  reformatory  at  Mans- 
field. There  is  nowhere  near  enough  out-door  work  and  gardening  at 
either  of  the  industrial  schools.  More  and  better  work  could  be  done 
if  more  skilled  permanent  help  v/ere  available.  This  is  not  a  matter 
of  organization  but  of  budgetary  provision.  Instead  of  having  guards  in 
shops  who  have  no  knowledge  of  the  trade,  it  should  be  possible  to  en- 
gage as  guards  men  whose  salaries  could  be  put  into  costs  of  operation 
because  of  their  help  in  bringing  out  abilities  of  the  men.  It  is  quite 
practical  to  find  such  ability  together  with  the  rather  meager  qualifica- 
tions of  a  guard. 


544  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE      . 

If  the  accounting  were  on  the  right  basis  the  additional  capacity  re- 
quired in  teacher-guards  would  be  included  in  the  cost  to  patrons  of 
these  industries  who  would  still  get  their  product  at  less  than  outside 
market  rates.  An  attraction  of  this  plan  would  be  that  instead  of 
guarding  being  a  blind-alley  job,  success  in  this  work  would  lead  to 
promotion  for  men  upward  through  supervision  of  industries  instead  of 
the  present  deadening  effect  of  remaining  just  guards. 

This  question  of  personnel  is  extremely  important  at  this  time 
because  at  all  institutions  morale  was  at  an  abnormally  low  point  largely 
due  to  the  fact  that  there  were  too  few  workers  or  below  par  workers. 
It  is  very  costly  under  a  civil  service  law  to  take  in  workers  who  are 
below  par  because  after  they  get  into  the  organization  it  becomes  almost 
impossible  to  raise  the  standards.  The  present  board  has  convinced  the 
emergency  board  that  steps  ought  to  be  taken  and  that  institutional  work 
is  menaced  by  too  low  salaries.  It  has  not  begun  to  give  to  the  general 
public  the  appreciation  of  issues  involved.  It  has  not  made  clear  the 
danger  of  taking  in  incompetent  persons.  This  board  or  the  director, 
who  should  succed  it,  should  insist  upon  making  only  temporary  ap- 
pointments until  qualified  workers  can  be  secured. 

THE   STATE   SCHOOL    FOR   THE    BLIND 

This  institution  had  in  1918  a  very  high  per  capita  cost  of  $647.47 
for  a  population  of  2  39.  This  cost  does  not  include  holidays  when  stu- 
dents go  home,  nor  clothes  and  medical  care  paid  for  by  families. 

One  item  of  expense,  that  of  six  regular  laundry  employes  and  13 
helpers  on  day  wages  is  questioned.  This  work  used  to  be  done  bv 
women  of  the  penitentiary.  The  claim  was  made  that  there  was  always 
trouble,  it  was  not  well  enough  done,  clothes  were  lost,  etc.  Officers 
of  the  various  state  institutions  for  whom  this  laundry  work  is  done 
prefer  the  results  of  workers  under  better  control. 

It  is  regrettable  that  with  all  the  institution  labor  in  the  penitentiary 
and  the  institution  for  the  feeble-minded  and  the  hospital  for  the  insane 
right  in  Columbus,  it  is  necessary  to  hire  19  different  people  to  do  this 
laundry  work.  The  possible  saving  here  alone  would  far  more  than  meet 
the  entire  cost  of  the  field  studies  made  by  your  committee. 

MISCELLANEOUS   FACTS  AND  SUGGESTIONS 

It  is  assumed  that  your  committee  does  not  wish  detailed  reports  on 
visits  to  all  institutions.  Robert  Rosenbluth,  an  engineer  and  forester, 
the  organi/er  of  New  York  City's  Hampton  Farms  Reformatory,  Captain 
of  Engineers,  A.  E.  F.  and  an  experienced  investigator,  reported  in  detail 
on  a  number  of  these  institutions.  A  few  results  of  these  visits  are  added 
here  to  those  given  above  in  greater  detail  for  the  purpose  of  emphasiz- 
ing the  importance  of  a  single  responsible  head  who  will   consider  the 


ON    ADMINISTRATIVE   REORGANIZATION  545 

direction  of  Ohio's  welfare  institutions  as  a  great  professional  obligation 
and  opportunity. 

THE  PENITENTIARY 

I 20%  of  the  penitentiary  inmates  are  out  as  trusties ;  the  warden 

believes  it  will  be  safe  to  place  out  as  many  more  in  barb  wire 
stockades  so  that  overcrowding  could  be  entirely  eliminated. 
This  would  remove  about  450., 

2 —  By  such  step  work  enough  could  be  provided  so  that  there 
would  not  have  to  be  247  men  in  the  idle  house  and  effective 
idleness  of  about  400  men.  Nor  would  it  be  necessary  to  lock 
up  men  in  cells  from  4:30  P.  M.  to  6  A.  M.  without  recrea- 
tional or  educational  direction. 

3  —  The  chaplain  says  twice  as  many  men  would  like  to  have  school- 

ing at  the  penitentiary  as  it  permits;  teaching  is  by  inmates 
mostly;  teachers  spend  their  time  censoring  mail  chiefly;  in 
school  227;  both  chaplain  and  warden  would  like  to  see  re- 
quired reading  and  night  school. 

4  _  All  of  kitchen  and  dining  room  workers  except  the  steward  and 

two  guards  are  inmates. 

5  _  Now  a  man  may  be  paroled  who  has  not  saved  $10  or  enough 

to  reach  his  destination,  in  which  case  the  state  contributes  the 
difiference.  The  w^arden  believes  that  larger  earnings  should 
be  required  on  parole  so  that  at  least  every  man  will  have  $20 
of  savings  to  be  held  as  an  inducement  to  stay  straight  if  parole 
is  forthcoming. 

STATE   REFORMATORY   FOR  MEN 

6  —  At  the  state  reformatory  for  men  at  Mansfield  at  time  of  visit, 

January  10,  1920,  there  were  1650;  of  whom  116  were  sleeping 
out  on  honor;  608  cells  were  occupied  by  two  men,  making 
12 16  or  three-fourths  double  celling. 
7_A11  of  the  solitary  cells  were  filled;  they  are  used  cruelly;  men 
have  to  stand  all  day  in  a  narrow  barred  cage  just  about  big 
enough  for  them  to  stand  in ;  which  cages  are  attached  to  the 
barred  doors  of  the  cell  except  for  three  visits  by  the  guard 
when  they  are  given  bread  and  water  and  allowed  to  go  to  the 
toilet;  they  are  not  otherwise  allowed  to  relax  in  any  way. 
The  guard  stated  that  sometimes,  though  not  often,  men  were 
kept  that  way  from  one  to  two  weeks.  Many  other  methods  of 
inflicting  justifiable  punishment  quickly  and  fairly  exist.  To 
such  other  methods,  all  but  the  mentally  accountable  will 
respond,  especially  if  direct  relation  is  established  between 
parole  and  earnings,  etc.  Here  no  method  exists  for  dis- 
tinguishing between  the  responsible  and  irresponsible. 

35 


546  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

g — 18%  or  nearly  one-fifth  had  previously  been  at  Lancaster; 
8%  had  broken  probation ;  15%  had  broken  parole. 

9  —  At  least  500  of  these  inmates  could  be  housed  in  dormitory  ac- 
commodations inside  the  prison  yard. 

10  —  During   the   war   large   numbers    were   worked   out   on   honor 

and  successfully. 

11  —  500  men  were  not  being  worked  for  want  of  facilities,  that  is, 

500  days'  work  lost  each  day. 

12  —  The   superintendent   believes   that    more    expert    civilian   help 

would  increase  both  the  quality  and  quantity  of  products. 

13  —  Classes  are  few  and  crowded;  schools  are  held   in  the  day- 

time; text  not  allowed  to  be  taken  from  schoolroom;  it  was 
here  that  a  boy  who  had  finished  the  fourth  grade  before 
coming  in  was  assigned  to  the  third  grade. 

14  —  Only  91  employes  there  when  no  were  called  for;  the  turn- 

over each  month  is  from  20  to  30. 
1 1^ -J- Printing  called  for  by  various  state  colleges  calls  for  odd  sizes 
and    paper   of    too   high    quality.      The    institution   could   not 
easily  prevent  this  because  its  accounting  system  was  inade- 
quate. 

INDUSTRIAL  SCHOOL   FOR  BOYS 

16  —  At  Lancaster  industrial  school  for  boys  there  was  general 
overcrowding.  In  one  dormitory  two  boys  were  sleeping  on 
mattresses  on  the  floor. 

17 —  Toilet  facilities  are  quite  inadequate;  plans  are  being  made 
to  change. 

18  —  Ceilings  were  in  bad  repair. 

19  —  Fire  hazards  are  great. 

20 — Discipline  is  military  throughout  and  too  rigid. 

21  —  Baths  are  required  twice  a  week. 

22  —  Waste  of  bread  is  encouraged  by  placing  all  the  bread  and  the 

same  amount  for  each  boy  on  the  table.  If  one  or  two  pieces 
less  were  placed  there  with  second  helpings  if  desired,  a  con- 
siderable saving  would  result. 

23  — The  hospital  cases  were  eating  in  the  pantry  because  of  lack 

of  accommodations. 

24  _  The  teaching  the  last  two  years,  the  superintendent  says,  has 

been  poor  because  they  could  pay  only  from  $30  to  $50  a 
month. 

25  _  Between  350  and  4a3  l)oys  get  no  schooling  whatever,  which 

should  not  be  continued. 

26  —  Boys  who  work  all  day  around  the  barns  and  the  poultry  do 

not  have  the  ready  access  to  books  in  their  own  subjects ;  nor 
is  there  required  reading  in  connection  with  their  work  and 


ON    ADMINISTRATIVE   REORGANIZATION  547 

Otherwise.     See  above  suggestion   as  to  direction  of   reading 
in  all  correctional  institutions. 
'2'J  —  There  are  only  three  parole  agents  for  looo  cases. 

28  —  The  superintendent  in  charge  of  discipline  and  parole  says  thai 

"the  credit  and  mark  system  is  more  or  less  a  farce".  The 
record  is  mostly  negative. 

29  —  Of  1000  original  commitments  in   1918,   155  were  parole  vio- 

lators and  188  were  recommitments  for  crimes;  to  whom  should 
be  added  some  who  have  gone  to  other  institutions  as  to  Mans- 
field. 

30  —  Probation  by  the  courts  is  entirely  distinct  from  the  institu- 

tion so  much  so  that  records  do  not  show  whether  the  case  has 
been  on  probation  before  it  comes  to  Lancaster.  No  study 
is  made. 
31 — This  school  has  refused  to  allow  the  bureau  of  juvenile  re- 
search to  come  in  and  examine  children  who  are  there  and  the 
board  of  administration  has  supported  that  refusal. 

32  —  Because  of  crowding  the  period  of   attendance  has   dropped 

from  12  months  to  eight  months.  No  evil  effects  in  the  way 
of  gross  violations  have  been  noted.  This  raises  the  question 
whether  reducing  to  six  months  would  be  safe  and  to  four 
months,  and  further  the  question  as  to  this  being  the  way  to 
deal  with  any  considerable  number  of  boys. 

33  —  Nothing  is  done  to  tie  up  what  happens  at  the  institution,  or 

what  happens  before  coming  to  the  institution,  with  the  work 
of  school  systems  and  attendance  officers  outside. 

34  —  Conditions  of  overcrowding  are  such  that  Ohio  should  experi- 

ment under  the  present  organization  by  placing  out  large  num- 
bers of  these  boys  on  honor  in  selected  families  as  soon  as 
their  cases  have  been  carefully  studied  by  the  bureau  of  juvenile 
research  and  the  superintendent;  also  with  a  reduction  in  the 
time  to  four  months  or  one  school  term. 

THE    STATE    REFORMATORY    FOR    WOMEN 

35  —  The  state  reformatory  for  women  is  cited  by  Mr.  Rosenbluth 

as  a  horrible  example  of  how  not  to  proceed  in  the  development 
of  state  institutions.  Built  at  an  exceedingly  heavy  cost  of 
$317,000  for  building,  it  was  soon  discovered  that  the  number 
of  cases  which  the  courts  committeed  were  few.  Therefore, 
the  governor  opened  the  institution  for  indeterminate  sentence 
for  misdemeanants  as  well. 

36  —  The  trouble  is  that  the  large  staff  required  to  run  the  plant 

makes  a  tremendous  overhead  expense.  In  1918  it  cost  more 
to  keep  an  able-bodied  woman  at  this  institution  than  to  care 
for  three  sick  patients  at  one  of  the  hospitals  for  the  insane. 


548  REPORT  OF   JOINT  LEGISLATIVE   COMMITTEE 

2,7  —  There  is  practically  no  work. 

38  —  There  are  no  educational  facilities  except  that  some  schooling 

is  given  in  the  winter  for  illiterates. 

39  —  The  library  is  small,  the  gift  of  some  women's  clubs. 

40  —  There  is  no  medical  room ;  the  operating  room  is  screened  off 

by  sheets. 

41  —  Conditions  reflect  clearly  the  outspoken  distaste  of  the  board 

of  administration  and  also  the  inadequate  planning  before  the 
project  was  initiated. 

42  —  Evidences  of  neglect  by  the  board  of  administration  include  an 

unsanitary  break  in  the  "guaranteed"  flooring  which  has  been 
neglected  for  many  months ;  steers  are  kept  putside  without 
shelter. 

43  —  About  40  to  50  girls  are  working  out  on  honor  and  their  earn- 

ings come  to  the  institution  in  trust. 

44  —  The   living   is   out    of    proportion    to    other    institutions ;    for 

example,  as  already  cited,  butter  twice  a  day  even  though 
there  is  no  dairy  herd. 

45  —  The   superintendent   says   that    1500   women    should   be   here. 

The  board  of  administration  says  that  the  only  way  to  keep 
150  there  is  to  open  the  door  to  misdeamants  and  to  work- 
house cases.  These  issues  can  easily  be  tested.  Such  a  study 
should  be  made  as  above  suggested,  and  unless  a  case  can  be 
made  out  for  the  institution  the  ground  should  be  reserved 
for  another  institution  and  felony  cases  returned  to  the  peni- 
tentiary  farm. 

STATE   HOSPITAL   FOR   THE   INSANE 

46  —  The  state  hospital   for  the   insane  at  Columbus  occupies   304 

acres  in  the  city  of  Columbus  situated  between  a  trolley  line 
and  two  main  railway  lines.  About  one-third  or  100  acres 
are  farmed  chiefly  by  150  to  200  inmates. 

47  —  There  seems  no  reason  for  retaining  so  much   land.     There 

is  plenty  of  room  for  isolation  and  expansion  so  that  some 
of  the  land  might  be  sold  at  a  high  value,  perhaps  $1500  an 
acre.  If  claimed  that  the  land  is  necessary  to  keep  the  higher 
grade  patients  employed  it  would  be  more  profitable  to  have 
simple  shacks  for  them  on  the  feeble-minded  farm. 

48  —  The  coal  consuni]:)tion  is  59  tons  a  day.     Perhai~)s  the  reason 

is  failure  to  have  it  carefully  tested. 

PERSONNEL 

49 —  Personnel  at  institutions  is  at  a  low  ebb  in  number  and  quality; 
salaries  are  too  low. 


ON    ADMINISTRATIVE   REORGANIZATION  549 

^o  —  Without    waiting    for   reorganization    a    plan   should   be    subr 
mitted  in  combination  with  other  state  institutions  for 
(i)      Pension. 

(2)  Life  insurance  on  the  group  plan. 

(3)  Industrial  insurance. 

(4)  Housing  facilities  at  fair  rentals,  a  provision  which  un- 
questionably the  state  must  make  if  it  is  going  to  keep 
its  staff  recruited  with  desirable  workers. 

MISCELLANEOUS 

51  —  In  the  reformatory  institutions  and  penitentiary  study  should 

be  made  at  once  of  all  those  whose  crimes  were  directly  the 
result  of  drunkenness  at  the  time  of  admission  and  the  board 
of  clemency  should  be  asked  to  consider  where  the  law  per- 
mits, and  the  legislature  should  provide  where  present  law 
prohibits,  the  parole  of  all  such  cases. 

52  —  All   plans    for   expanding   correctional   institutions   should   be 

checked  until  after  it  is  seen  how  prohibition  affects  the  num- 
ber   of    commitments. 

53  —  The  law  should  remove  the  minimum  sentence  and  leave   it 

with  the  board  of  clemency  to  give  shorter  terms. 
54  —  So  great  is  the  danger  of  inflicting  injustice  by  visiting  paroled 
men  at  their  places  of  employment,  a  practice  which  the  board 
of  clemency  says  has  thus  far  worked  to  mutual  satisfaction, 
that  the  law  should  require  a  careful  record  of  every  such 
visit.  It  should  not  be  possible  to  subject  any  Ohio  ex- 
prisoner  to  prosecution  and  threatened  loss  of  job. 

SUPPORT    DEPARTMENT    OF    BOARD    OF    STATE    CHARITIES    FOR 
INSTITUTIONS    UNDER    THE    BOARD    OF    ADMINISTRATION 

-5  —  Has  4000  cases   a  year    for  a   director   and   five  men   in   the 
field  and  offfce. 

56  —  Large   numbers   require    no   visiting   as   they   voluntarily    sign 

agreement  to  pay. 

57  — Maximum  charge  of  $3.50  per  week  for  the  insane  and  epi- 

leptic was  fixed  before  the  cost  of  living  had  risen.  For  the 
feeble-minded  it  was  raised  in  1919  to  $3.15  per  week.  As 
this  is  paid  to  counties  it  should  be  fixed  at  actual  cost  which 
is  much  higher  than  $3.15  per  week.  This  is  the  type  of  con- 
dition that  should  be  corrected  as  the  result  of  state  auditor's 
inspections. 

58  —  At  the  state  sanatorium  for  tuberculosis  the  amount  is  fixed 

by  the  head  of  the  institution  which  is  anywhere  from  $5  to 
$25  a  week.    They  are  classed  as  pay-patients  and  no  further 


550  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

investigation  is  made.  Where  a  state  has  a  field  stafif  for  in 
spection  the  determination  of  this  amount  should  not  be  left 
to  a  superintendent  lacking  means  of  examination. 

59  —  The  three  field  investigators  and  the  chief  travel  all  over  the 

state  without  districting,  a  condition  which  should  be  corrected 
whether  or  not  this  work  is  transferred  to  the  board  of  ad- 
ministration as  recommended. 

60  —  If  counties  were  held  responsible  for  collecting  from  the  in- 

sane and  epileptic  where  now  families  are  visited  directly  by 
the  state  the  expense  of  this  support  bureau  to  the  state  would 
be  almost  entirely  eliminated  for  its  work  with  them  should 
be  auditing  rather  than  inspecting  and  collecting. 

INTERVIEW    WITH    BOARD  OF   ADMINISTRATION 

The  board  itself  feels  that  the  Marysville  reformatory  for  women  is 
unnecessary  and  an  unwarranted  expense ;  that  the  few  women  felony 
cases  can  be  taken  care  of  elsewhere  so  that  their  work  would  be  useful. 
They  plan  to  have  these  women  transferred  to  the  penitentiary  or  to 
a  separate  building  of  the  new  prison  farm  and  to  develop  on  the  present 
site  a  school  for  the  deaf  and  dumb,  thus  releasing  the  present  building 
and  site  in  Columbus  for  other  purposes.  They  believe  they  can  save 
money  while  at  the  same  time  doing  much  better  for  the  deaf  and  dumb. 

They  lack,  however,  the  basic  facts  about  the  number  of  women  who 
are  eligible  to  the  reformatory.  They  cannot  prove  that  the  institution 
is  needless  and  that  the  superintendent  is  incorrect  when  she  says  that 
there  ought  to  be  1500  women  there. 

The  board  admits  that  accounting  statements  on  manufacturing  in- 
dustries are  incomplete ;  has  never  contemplated  including  prisoners' 
compensation  and  guards  in  the  cost  of  production ;  agrees  that  the  farm 
capital  cost  should  be  accounted  for  the  same  as  in  a  manufacturing  in- 
dustry; wants  more  margin  to  expand  industries  but  admits  that  it  has 
had  general  rather  than  exact  information;  also  admits  lack  of  educa- 
tional scientific  work  but  says  this  is  due  to  lack  of  appropriation  and 
would  like  to  do  more ;  has,  however,  had  no  definite  program ;  deplores 
present  lack  of  medical  follow-up;  deplores  lack  of  adequate  medical 
attention  in  the  hospitals  and  says  that  Ohio's  450  patients  to  a  physician 
is  three  times  that  of  Massachusetts. 

COMMENTS    BY    THE    STATE   AUDITOR 

At  present  the  appropriations  and  practice  of  the  office  permit  a 
visit  to  state  institutions  but  once  in  two  years. 

Reports  show  that  accounting  and  other  beneficial  changes  recom- 
mended have  generally  been  made  although  several  of  the  violations 
have  continued  such  as  the  excessive  local  purchases  at  the  girls  industrial 


ON    ADMINISTRATIVE   REORGANIZATION  55I 

school  and  shortages  in  stores.  There  is  no  indication  that  the  auditor 
has  insisted  upon  an  accounting  for  the  industries  including  the  farms 
which  would  give  all  of  the  cost  to  the  state.  He  recalls  that  he  has  not 
been  given  funds  for  installing  accounts  and  that  the  legislature  has  dis- 
couraged reports  by  him  not  limited  to  conventional  audits. 

The  casual  inspection  which  the  auditor  makes  at  biennial  intervals 
have  never  failed  to  discover  many  lacks  and  leaks  which  the  auditor's 
office  feels  the  inspectional  service  of  the  board  of  administration  should 
certainly  have  discovered  and  many  of  which  should  never  have  occurred. 

Examples  cited  include  these : 

1  —  55    steers   at    Marysville   women's    reformatory   in   midwinter 

without  shelter. 

2  —  At  Gallipolis  hospital  for  epileptics  a  $1200  coal  crusher  was 

found  in  September,  1919,  unloaded  the  preceding  February 
and  left  out  in  the  open  unused  because  it  was  found  that 
outside  help  would  have  to  be  hired  to  run  it. 

3  —  Also   at   Gallipolis   a  $2800  water   softener   was    found   after 

delivery  to  be  found  unnecessary  and  unusable  because  they 
could  buy  city  water  cheaper. 

4  —  At  the  Athens  hospital  for  the  insane,  although  there  is  coal 

on  the  property,  the  institution  hauls  by  truck  from  the  other 
side  of  the  river  all  its  coal  and  other  supplies  as  there  is  no 
railroad  on  the  institution  side. 

5  —  At  several  institutions  the  costly  practice  of  buying  burial  plots 

in  local  cemeteries  is  continued  when  ample  lands  and  oppor- 
tunity exist  to  create  a  cemetery  on  institution  grounds. 

In  many  other  sections  and  reports  diflferent  suggestions  have  been 
made  for  the  development  of  the  operation  audit.  The  auditor  of  state 
should  be  given  funds  enough  so  that  operation  audits  will  be  made 
oftener  than  once  in  two  years.  It  is  suggested  that  all  reports  of  audits 
be  filed  with  the  governor  as  well  as  with  the  director  of  administration  or 
board  of  administration  and  institution  head. 

Furthermore,  to  emphasize  the  auditing  function  of  a  properly 
working  state  board  of  charities  it  is  recommended  in  a  separate  board 
that  the  unpaid  visiting  and  recommending  welfare  board  be  appointed 
by  the  auditor  instead  of  by  the  governor  whose  appointees'  work  is  to 
be  inspected. 


THE  OHIO  BOARD  OF  CLEMENCY 

By  WILLIAM  H.  ALLEN 


The  Ohio  board  of  clemency  consists  of  two  members  named  by  the 
governor  as  his  personal  representatives  in  investigating  appeals  for 
pardon  and  parole.  This  board  concerns  itself  with  the  penitentiary,  the 
reformatory  for  men  at  Mansfield  and  the  reformatory  for  women  at 
Marysville. 

While  technically  part  of  the  governor's  own  office,  the  board  of 
parole  has  its  headquarters  in  the  penitentiary,  a  ten-minute  walk  from 
the  executive  office.    This  is  a  suitable  arrangement. 

As  a  matter  of  organization  it  is  not  desirable  to  change  the  governor's 
relation  to  this  board  or  the  number  of  the  board  or  the  board's  relation 
to  the  institution  whose  inmates  it  must  study.  The  reason  for  continuing 
the  board  of  clemency  in  the  executive  office  rathe;-  than  as  a  branch 
of  the  board  of  administration  is  that  this  is  in  no  sense  an  administra- 
tive body  so  far  as  the  correctional  laws  are  concerned.  It  is  a  listening 
and  studying  body  which  serves  as  eyes  and  ears  for  the  governor. 
Properly  used  it  increases  the  chances  of  justice  for  inmates  of  the  peni- 
tentiary and  the  two  reformatories,  and  while  saving  the  executive's  time 
enables  him  to  give  discriminating  audience  to  legitimate  and  illegitimate 
appeals  without  jeopardizing  other  state  work  or  the  administration  of 
penal  and  correctional  laws. 

There  is  one  serious  defect  in  the  organization  of  the  clemency  board 
for  which  no  workable  remedy  is  in  sight,  namely,  it  is  no  one's  business 
to  review  the  work  of  the  board  of  clemency.  The  governor  is  respon- 
sible. He  accepts  or  rejects  their  recommendations.  Theoretically  he 
audits  their  methods  and  results.  Actually  he  is  influenced  by  their  pre- 
sentation oral  and  in  writing.  He  has  not  the  time  to  test  the  thorough- 
ness of  their  investigation  or  the  soundness  of  the  method  which  they  use 
in  keeping  track  of  persons  on  parole,  of  supervising  and  testing  parole 
officers,  and  of  using  their  knowledge  to  secure  improvement  in  prison 
and  reformatory  methods.  Yet  their  work  ought  especially  to  be  subject 
to  outside  and  independent  audit.  In  the  Ohio  organization  the  only 
agency  that  may  properly  be  charged  with  this  special  responsibility  is 
the  reorganized  board  of  charities  which  is  recommended.  It  is  sug- 
gested that  the  law  creating  a  new  board  of  charities  should  specific- 
ally charge  it  with  responsibility  for  analyzing  the  work  of  the  clemency 
board  and  of  reporting  upon  it  annually  to  the  governor  and  biennially 
to  the  governor,  legislature  and  public. 

552 


ON    ADMINISTRATIVE    REORGANIZATION  553 

Another  weakness  in  the  situation  needs  comment  but  would  prob- 
ably be  better  left  upon  the  executive  shoulders,  namely,  there  are  no 
qualifications  in  the  law  for  members  of  the  clemency  board.  This  is 
so  peculiarly  a  position  of  trust  that  any  interference  with  complete 
freedom  in  the  executive  choice  might  easily  do  more  harm  than  good. 
Heretofore  the  governor  has  named  men  inexperienced  in  reformatory, 
parole  and  probation  work.  Instead  he  has  chosen  newspaper  men  until 
in  1920  he  filled  a  vacancy  by  naming  the  commissioner  from  another 
state  department.  The  best  way  to  improve  this  condition  is  to  secure 
through  the  board  of  charities  and  the  voluntary  council  of  social 
agencies  public  discussion  on  parole  methods  and  results.  The  executive, 
however,  can  accomplish'  much  by  requiring  of  each  new  appointee  that 
he  giv«  early  evidence  of  having  studied  the  past  methods  of  the  Ohio 
board  of  clemency  and  the  methods  and  discussion  in  other  states. 

In  the  administration  of  the  law  there  are  two  or  three  forward 
steps  that  even  an  organization  study  shows  are  desirable : 

I More  specific  reports  should  be  required,  containing  more 

definite  information  and  more  comparative  information. 
2  —  It  would  save  in  a  large  number  of  cases  one  month's  time 
for  inmates  and  one  month's  cost  to  the  state  if  the  in- 
vestigation of  cases  eligible  to  parole  should  begin  in  the 
eleventh  month  before  legal  eligibility.  Now  this  investi- 
gation starts  at  the  beginning  of  the  month  when  they  are 
eligible  to  leave.  It  takes  about  a  month  from  the  day  when 
a  name  automatically  comes  to  the  board  until  it  can  dispose 
of  the  case.  By  advancing  the  board's  part  one  month  it  can 
make  the  period  twelve  months  instead  of  thirteen  in  a  very 
large  number  of  cases. 
3 The  supervision  of  men  on  parole  which  technicsJly  be- 
longs with  the  heads  of  the  three  institutions  served  by 
this  board  is  inadequate.  In  the  first  place,  there  are 
altogether  too  few  parole  officers.  In  the  second  place,  the 
information  which  they  are  required  to  supply  is  inadaquate. 
These  conditions  can  be  changed  by  higher  exactions  on  the 
part  of  the  board  of  clemency. 

4 The  work  done  at  the  two  reformatories  at  Mansfield  and 

Marysville  is  done  too  hurriedly  to  be  thorough.  In  fact, 
the  board  reports  that  it  acts  with  little  challenge  upon  the 
recommendation  of  the  heads  of  these  two  institutions.  It 
would  not  do  this  if  it  lived  in  the  institution.  The  fact  that 
Mansfield  is  an  hour's  ride  and  Marysville  two  hours'  ride 
ought  not  to  be  allowed  to  interfere  with  the  thoroughness  of 
this  parole  work.  The  board  writes  that  it  spends  each  month 
3,  4,  or  5  days  at  Mansfield  and  but  one  day  at  Marysville. 


554  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

t  '/'•■>/'/.;.{' j;,/j] 
What  this  means  may  be  judged  from  the  following  figures. 
Upon  one  day's  study  and  interview  interrupted  by  meals  and 
amenities,  of  course,  there  were  paroled  in  1919,  from  Marys- 
ville  24  in  January,  20  in  April,  20  in  June,  1 1  in  December,  9 
in  March,  8  in  July,  7  in  February  and  November,  4  in  Septem- 
ber and  October.  In  3,  4,  or  5  days  each  there  were  paroled 
from  the  reformatory  at  Mansfield  108  in  March,  105  in  April, 
96  in  January,  82  in  June,  81  in  July,  'jj  in  February,  60  in 
May,  from  40  to  44  in  November,  December,  and  September, 
and  34  in  October. 

5  —  Instead   of   increasing-  the   number  of  the  board,  provision 

for  increased  visits  to  institutions  and  increased  interviews 
of  inmates  should  be  made  by  giving  the  board  more  in- 
spectors. By  working-  arrangements  with  the  institutions 
and  by  improving  the  technique  of  securing  information  it 
will  be  possible  to  use  men  already  on  the  staff  of  each  insti- 
tution. 

6  —  Best   practice    in    other   states    should    be    studied    by    the 

clemency  board.  "We  have  no  comparisons  of  methods 
in  Ohio  compared  with  other  states",  the  board  wrote.  The 
Legislative  Reference  Library  would  gladly  and  cumulatively 
secure  information  from  all  states  where  there  are  parole 
boards  and  place  Ohio's  board  of  clemency  in  position  to  an- 
alyze better  its  own  practices  and  to  benefit  from  the  practices 
of  other  states. 

7  —  Analysis  is  needed  of  Ohio's  problems  and  practices.     With 

offices  in  the  penitentiary  and  branches  in  the  two  reformatories 
it  has  not  seemed  advisable  to  build  up  special  systems  of 
records.  It  will  be  easy,  however,  through  a  system  of  tags 
and  devices  that  have  proved  their  worth,  to  keep  a  current 
record  of  work  done  by  the  board  of  clemency  and  of  correc- 
tional problems  in  Ohio  which  will  be  invaluable  to  this  board 
and  to  the  state.  Standing  as  it  does  at  one  gateway  and  re- 
viewing as  it  must  the  inflow  at  the  entrance  gate,  this  board 
should  be  able  to  tell  Ohio  where  if  at  all  its  program  for  pre- 
venting or  reducing  crime  is  breaking  down.  It  should  be  able 
to  give  the  governor  invaluable  advice.  Such  program  it  has 
not  yet  undertaken.  It  has  not  sought  the  information  with 
which  to  understand  the  volume  and  complexity  of  the  prob- 
lems which  clear  through  its  office.  It  can  throw  no  light  upon 
the  effectiveness  of  the  probation  system  in  the  county  courts. 
It  states  that  it  does  not  know  what  proportion  of  parole  break- 
ers have  been  returned  by  institutional  parole  officers,  by  pro- 
bationary officers  in  counties  or  by  police  departments.     As  a 


ON   ADMINISTRATIVE   REORGANIZATION  555 

next  Step  it  is  suggested  that  this  board  be  held  responsible 
for  formulating  a  method  which  will  enable  institutions  and 
county  courts  to  work  together  for  far  more  efifective  parole 
and  for  helpful  interpretation  of  causes  and  promulgation  of 
remedies  in  the  field  of  correction. 
8  —  In  deciding  whether  to  parole  or  to  delay  parole  the  board 
has  not  yet  insisted  upon  evidence  of  physical  soundness 
or  of  minimum  educational  attainment.  It  is  suggested 
that  a  parole  policy  be  adopted,  that  as  far  as  the  law  permits 
it  to  decide  no  prisoner  shall  be  paroled  who  has  not  learned  to 
read  and  write,  and  that  no  prisoner  suffering  from  a  curable 
disease  be  paroled  until  the  penitentiary  or  reformatory  has 
done  everything  possible  to  cure  such  disease,  —  subject  of 
course,  to  time  limit  of  fixed  sentences. 

In  paroling  a  prisoner  effort  is  now  made  to  secure  him  a  position, 
to  encourage  and  help  him  while  holding  the  position,  and  to  delay  parole 
until  he  has  obtained  a  position.  While  recognizing  that  many  prisoners 
in  the  penitentiary  and  many  inmates  of  the  reformatories  are  just  as 
ready  for  parole  in  the  eighth  month  as  they  are  at  the  twelfth,  the  board 
of  clemency  has  neither  recommended  a  modification  of  the  law  nor 
helped  work  out  a  method  of  acting  within  the  law  to  reduce  the  cost 
to  the  state,  to  reduce  congestion  in  the  institutions  and  to  help  inmates. 
At  the  women's  reformatory  women  are  being  placed  on  farms  not  on 
parole  but  on  their  honor.  Their  earnings  come  back  to  the  institution 
as  trustee  and  finally  to  the  inmate.  Technically  this  practice  conforms 
with  the  law.  The  prisoner  is  not  on  parole  until  after  the  twelfth  month. 
Actually  she  is  at  work  on  an  honor  job  long  before  the  twelfth  month. 
It  is  suggested  that  the  board  of  clemency  investigate  this  method  and 
either  foster  it  within  the  present  law  or  urge  an  amendment  in  the  law 
giving  discretion  to  the  institution  heads  and  the  board  of  clemency  to 
recognize  exceptions  when  it  is  entirely  compatible  with  the  best  inter- 
ests of  the  state  to  place  prisoners  on  parole  earlier  than  the  thirteenth  or 
twelfth  month. 

The  board  of  clemency  has  no  jurisdiction  whatever  over  the  parole 
system  of  the  two  industrial  schools,  for  boys  at  Lancaster  and  for  girls 
at  Delaware.  It  is  not  advisable  that  this  board  be  given  charge  of  such 
parole.  It  should,  however,  be  required  to  investigate  the  methods, 
standards  and  results  of  parole  at  these  institutions.  It  is  recom- 
mended that  a  law  be  enacted  which  will  give  it  such  powers.  In 
this  way  the  board  will  learn  much  to  the  benefit  of  its  work  and  for  the 
assistance  of  the  industrial  schools  while  gaining  light  upon  the  gap  be- 
tween what  courts  and  probation  officers  might  be  doing  and  what  they 
are  actually  doing  to  prevent  crime  and  to  restore  violators  of  law. 


OHIO  SOLDIERS^  AND  SAILORS'  ORPHANS' 

HOME 

By  WILLIAM  H.  ALLEN 


In  November,  1918,  the  home  which  Ohio  conducts  at  Xenia  for 
orphans  of  Ohio  soldiers  and  sailors  registered  662  children  —  343  boys 
and  319  girls. 

For  this  school  and  home  the  state  has  appropriated  $236,000  for 
1921 — $93,000  for  personal  service,  $105,000  for  supplies,  $38,000  for 
other  maintenance  charges,  and  if  the  legislature  does  what  is  obviously 
needed  for  teachers  and  matrons  $20,000  more  must  be  added,  —  with- 
out increasing  the  number  of  pupils  registered. 

From  September,  191 3,  throughout  August,  1917,  the  home  gradu- 
ated 46  children  from  its  high  school. 

Among  high  spots  the  following  should  be  mentioned : 

1  —  Every  boy  or  girl  must  take  hand  work  and  vocational  work 

as  well  as  academic  studies. 

2  —  The  printing,  including  the  annual  report,  is  done  in  the  print 

shop  as  i^art  of  the  educational  work ;  the  home  weekly  of  four 
pages  is  also  put  out  from  this  print  shop. 

3  —  The  annual  homecoming  or  reunion  of  alumni,  paid  for  by  the 

school,  is  a  commendable  effort  to  keep  the  school  idea  rather 
than  the  orphan  home  idea  in  the  foreground;  it  is  unfor- 
tunate, however,  that  only  150  of  the  alumni  express  interest 
by  paying  for  the  home  weekly. 
4 — A  fire  drill  observed  by  unannounced  visitors  emptied  the 
school  buildings  promptly  and  brought  volunteer  firemen  to 
their  posts. 

5  —  Dental  attention  is  provided  and  work  done  is  reported. 

6  —  There  is  a  resident  physician. 

7  —  Much  progressive  work  was  observed  at  the  school,  including 

for  example,  attempts  to  compare  the  progress  and  attainment 
of  pupils  with  those  of  other  public  schools  by  means  of 
standard  measurements,  and  the  instruction  in  stenography. 

8  —  The  home  superintendent's  wife,  whose  title  is  matron  but  who 

is  actually  superintendent  with  respect  to  matters  educa- 
tional and  domestic,  has  rare  ability  for  this  kind  of  work; 
vastly  more  use  could  be  made  of  this  ability  if  she  could  see 
leading  schools  of  the  country,  private  academic  schools,  public 
industrial  schools,  etc..  as  "well  as  orphans'  homes, 

556 


ON    ADMINISTRATIVE   RKORGANIZATION  557 

9  —  The  superintendent's  personality  and  business  interest  are  high 
spots  from  which  far  more  could  be  realized  for  the  benefit  of 
children  if  he  also  could  see  best  practices  in  other  institu- 
tions, if  he  had  current  literature  of  institutional  management, 
and  if  he  had  the  benefit  of  such  help  and  supervision  as  a 
director  of  welfare  administration  and  the  state  superintendent 
of  public  instruction  might  give. 

Of  88  counties  in  Ohio  23  counties  had  no  pupils  registered;  nine 
counties  had  one ;  nine  counties  had  two ;  eight  counties  had  three ;  five 
counties  had  four.  The  counties  within  a  short  ride  of  the  home  — 
Montgomery,  Greene  and  Clark  —  had  245  children  or  over  one-third 
the  total  for  the  entire  state. 

Less  than  half  of  the  children  received  are  orphans.  Of  116  chil- 
dren received  for  the  last  fiscal  year  ending  June  30th,  1919,  the  fathers 
of  25  were  living,  the  mothers  of  25  were  living,  both  the  fathers  and 
mothers  of  53  were  living.  The  facts  as  to  the  total  number  during  the 
last  several  years  or  at  any  one  time,  who  are  neither  orphans  nor  half 
orphans,  are  not  known  to  the  institution. 

There  were  two  cases  each  of  five  and  six  children  from  one  family ; 
seven  cases  of  four  children  from  a  family ;  ten  cases  of  three  children 
from  a  family;  twelve  cases  of  two  children,  and  twelve  cases  of  one. 
Of  these  45  families  in  only  five  cases  of  13  children  are  the  father  and 
mother  both  dead;  in  9  cases  of  25  children  the  father  only  is  dead; 
in  ten  cases  of  25  children  the  mother  only  is  dead;  in  21  cases  of  53 
children  both  parents  are  living. 

Back  of  this  school  there  is  an  enthusiastic  clientele  of  former  sol- 
diers and  sailors.  Alumni,  especially  those  who  have  succeeded,  are 
apparently  anxious  to  have  the  school  continued.  Because  this  school 
was  started  by  the  Grand  Army  of  the  Republic  there  are  in  all  parts  of 
the  state  loyal  friends  of  the  G.  A.  R.  who  -  would  jump  to  the 
defense  of  this  school  against  any  unfair  criticism.  Unfortunately  this 
loyalty  to  the  original  idea  has  not  as  yet  taken  the  form  of  securing 
progressive  improvements  in  the  facilities  and  the  instruction  at  the 
school.  An  obvious  next  step  is  to  see  that  the  G.  A.  R.  and  the  new 
American  Legion  have  the  facts  about  the  original  purposes  and  present 
practices  of  this  home. 

The  small  number  of  counties  represented,  the  small  number  of 
families  represented,  and  the  large  proportion  of  children  who  coipe 
from  famihes  where  both  parents  are  living,  show  that  this  orphans' 
home  is  not  primarily  a  home  for  orphans ;  is  not  available  to  a  large 
enough  number  of  eligible  children;  and  is  not,  in  fact,  the  kind  of 
institution  which  the  law  intended  when  it  prescribed  the  following  con- 
ditions for  admission : 


558  REPORT  OF   JOINT  LEGISLATIVE  COMMITTEE 

"The  trustees  are  authorized  and  required  to  receive  into 
the  Home  under  such  rules  and  regulations  as  they  adopt,  the 
children  and  orphans  residing  in  Ohio  of  such  soldiers  and 
sailors  who  have  died  or  may  hereafter  die  by  reason  of  wounds 
received,  or  disease  contracted  while  serving  in  the  military  or 
naval  forces  of  the  United  States ;  that  are  found  to  be  DESTI- 
TUTE OF  MEANS  OF  SUPPORT  AND  EDUCATION; 
and  the  children  also  of  permanently  disabled  or  indigent  sol- 
diers and  sailors  of  said  service  found  DESTITUTE  as  afore- 
said." 

If  the  children  who  are  now  in  this  home  are  eligible  to  the  home, 
there  are  also  enough  other  eligible  children  in  Ohio  to  fill  twenty  such 
homes.  If  Ohio  is  not  prepared  to  give  the  same  treatment  to  all 
eligible  children  of  soldiers  and  sailors,  it  is  not  fair  to  maintain  a  school 
for  an  infinitesimal  fraction  of  those  children.  Now  is  the  time  to 
face  squarely  the  question  whether  Ohio  will  continue  to  discriminate  in 
favor  of  a  small  number  or  will  give  free  education  and  home  to  soldiers' 
and  sailors'  children  generally  wherever  the  simple  requirements  for 
admission  are  met. 

A  special  reporting  on  the  physical  education,  outdoor  play,  and 
social  training  of  these  children  was  made  for  your  committee  by  Miss 
Marie  M.  Weber,  at  the  time  director  of  physical  training  for  the  War 
Camp  Community  Service  of  Columbus.  Miss  Weber's  report  is  given 
briefly  in  her  own  working  notes  : 

1  —  Ph_\sical    training  is  given  in  the   school   room,   not  outdoors, 
I     the   reason  given   being  that  the   children   might   run   away   if 

given  physical  training  outdoors.  (The  physical  training 
teacher  frequently  referred  to  this  as  an  ever  present  danger. 
The  superintendent  admitted  that  it  occasionally  happened  but 
that  he  considered  it  natural.)  Children  are  not  even  taken 
to  the  assembly  room  which  has  quite  a  large  floor  space  and  a 
few  pieces  of  small  apparatus  for  a  gymnasium.  —  again  for 
fear  there  might  be  attempts  to  escape. 

2  —  The  training  consists  of  one  30-minute  period  once  a  week  — 

ten  minutes  on  arm  and  leg  exercises  to  develop  grace,  ten 
minutes  in  skipping  and  running,  and  ten  minutes  on  expres- 
sion for  the  purpose  of  using  gestures. 
3  —  The  teacher  is  not  interested  in  physical  education,  but  teaches 
it  from  necessity.  She  not  only  does  not  like  to  do  it  but 
considers  that  she  is  not  ecjuipj^ed  for  it.  She  is  not  trained 
for  it ;  she  lacks  knowledge  of  purpose  and  methods.  Her 
chief  interests  are  dramatics  and  dancing.  She  is  a  very  good 
dancing  teacher. 


ON    ADMINISTRATIVE   REORGANIZATION  559 

4  —  Attention  is  paid  to  posture. 

5  —  Windows   are   not  opened   during  exercise   periods.       During 

the  visit  children  were  scolded  for  opening  windows  on  ac- 
count of  the  heat. 

6  —  High  school  children  do  not  have  physical  training,  "as  their 

time  is  all  taken  up  with  their  other  studies."  Older  boys 
have  a  basketball  team  but  no  provision  is  made  for  the  in- 
experienced boys  or  for  the  girls. 

7  —  A  dancing  class  (folk  and  seesthetic)  was  started  for  the  girls 

and  met  once  a  week  for  45  minutes  after  school.     It  was^ 
stopped  after  two  lessons  because  the  girls  practiced  some  of 
their  dancing  steps  out  of  class  and  the  older  members  of  the 
faculty  disapproved. 

8  —  There  are  no  hikes,  although  the  home  is  out  in  the  country. 

The  reason  given  is  that  there  is  no  one  to  take  them  and  they 
might  run  away. 

9  —  Tennis,  volley  ball,  baseball,  captain  ball  —  none. 

10 — Swimming:  none  except  for  boys  on  special  occasions  in  sum- 
mer.     They  are  then  taken  to  the  creek. 

1 1  —  Interclass  contests  —  none.      The  reason  for  this  is  that  they 

play  no  games. 

12  —  Physical  examinations  are  not  given  except  upon  entrance  to 

the  institution.  The  teacher  reported  that  the  superintendent 
does  not  see  any  value  in  them.  (Entrance  examinations  are 
not  complete  enough.) 

13  —  Recesses:    none    during    school.       Directly   after    school    until 

the  evening  meal  children  have  domestic  duties. 

14  —  Playtime  is  from  6  to  7  P.  M.      During  this  time  they  have 

someone  to  watch  them  but  not  to  teach  them.  In  winter 
this  play  is  in  the  cottage,  the  only  time  they  have  for  con- 
versation. 

15  —  Playgrounds  are  in  a  run  down  condition.      Several  pieces  of 

apparatus  that  could  be  used  to  advantage  are  out  of  order. 
There  are  chinning  rods  in  excess  considering  the  lack  of  other 
playground  equipment. 

16  —  The  playground  equipment  for  large  boys  consists  of  chinning 

rods,  two  sliding  poles,  two  ba^skets,  one  pole  for  giant  stride 
that  is  not  in  use  because  out  of  repair;  for  small  boys  a 
teeter  board,  two  rods  for  swings  but  no  swings,  and  chin- 
ning rods;  for  girls  four  rods  for  swings  but  only  one  swing, 
two  sliding  boards  and  two  teeters. 

17  —  The   armory   and   drilling   room   equipment   consists   of  boys' 

basketball  and  a  large  floor  space  for  drilling  in  winter.  The 
drilling  is  under  the  supervision  of  a  United  States  major,  a«d' 


560  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

takes  i^lace  after  school  three  times  a  week,  except  that  boys 
inarch  to  and  from  school  in  military  formation. 

18 — Of  social  training  there  is  none  at  this  school,  except  a  very 
little  in  the  senior  year,  according  to  the  matron.  Boys  and 
I  girls  are  kept  strictly  apart  at  all  times;  they  do  not  meet  the 
opposite  sex  socially  except  at  school.  They  are  not  allowed 
to  have  dancing  or  any  social  entertainments ;  within  sexes 
they  are  not  allowed  to  converse  during  meals ;  a  matron  at 
each  table  maintains  discipline  and  serves  food,  in  a  motherly 
way.  Teachers  know  very  little  of  the  life  of  the  children 
outside  of  the  school,  for  they  eat  in  a  separate  dining  room 
and  live  in  separate  houses  and  have  no  responsibility  what- 
ever out  of  class. 

19  —  Of  music  each  child  has  two  periods  a  week,  the  length  of 
period  varying  with  the  grade;  in  the  lower  grades  fifteen 
minutes  and  with  high  school  students  forty-five  mniutes. 
Opportunities  for  community  singing  are  lacking. 

If  Ohio  continues  this  home  it  is  recommended: 

1  —  That  effort  be  made  to  place  the  facts  about  education  and 

free  board  ofifered  before  ^11  soldiers  and  sailors  in  Ohio.  This 
should  be  done  not  only  once  but  repeatedly.  Similarly,  such 
facts  should  be  repeatedly  called  to  the  attention  of  public 
schools,  churches,  probate  judges,  other  public  officers  and 
private  charitable  agencies ; 

2  —  That   the  management  of   the   home  be   transferred   from  its 
-j  present  board  of  five  trustees   to   the   recommended  director 

of  welfare  administration,  for  reasons  stated  in  the  special 
report  on  the  board  of  administration ; 

3  —  That    responsibility    for    visiting,    examining,    and    publishing 

facts  about  the  school  and  its  budget  estimates  be  lodged  by 
law  with  the  proposed  Ohio  board  of  education ; 

4  —  That  the  law  prohibit  the  reception  at  this  school  of   feeble- 

minded or  other  sub-normal  children  and  require  the  certifica- 
tion of  sound-mindedness  by  the  bureau  of  juvenile  research 
(now  attached  to  the  board  of  administration)  before  the 
authorities  may  receive  a  child; 

5  —  That  all  children  at  present  in  the  institution  be  examined  by 

the  bureau  of  juvenile  research  with  a  view  to  eliminating 
from  this  school  the  fifty  to  one  hundred  children  who  are 
feeble-minded  or  seriously  sub-normal.  While  the  parents  of 
children  who  need  to  be  eliminated  may  regret  such  action  it 
is  clear  that  the  state  of  Ohio  has  absolutely  no  right  to  place 
soVmd-minded  boys  and  girls  of  heroic  soldiers  and  sailors  in 
day-and-night  contact  with  sub-normal  children.  The  parents 
of  unfortunate  children  can  also  be  shown  that  it  is  quite  un- 


ON    ADMINISTRATIVE   REORGANIZATION  561 

fair  to  those  children  to  have  them  in  a  school  and  home  that 
is  not  intended  or  equipped  to  do  what  is  necessary  for  them ; 

6  —  That  instead  of  maintaining  its  own  high  school  the  children 

be  sent  to  the  high  school  of  Xenia,  and  that  the  state  con- 
sider having  at  least  upper  grade  grammar  school  children 
given  the  benefit  of  normal  school  surroundings  and  exac- 
tions, in  the  Xenia  schools ; 

7  —  That  special  effort  be  made  to  inform  the  local  chapters  of  the 

Grand  Arm}-  of  the  Republic  and  the  American  Legion  as  to 
the  program  and  practice  of  this  school  and  of  any  new  pro- 
posals regarding  it  that  may  be  made. 

Reasons    for   the    above   recommendations   are   given    in   each 
of  the  following  facts : 

I — The  home  itself  is  now  very  much  an  orphan  as  an  institu- 
tion, even  if  it  is  not  a  home  for  orphans. 

2  —  It  does  not  get  the  hearing  that  it  deserves  from  the  legislature 

or  the  public. 

3  —  Its  methods  of  describing  its  work  and  studying  its  problems 

are  not  up-to-date,  except  in  part  of  the  school  work  where 
modern  methods  are  being  used. 

4  —  It  makes  no  attempt  to  keep  follow-up  records  of  all  its  former 

pupils:  it  knows  about  striking  successes,  of  whom  there  are 
several.  It  has  an  alumni  day  for  which  it  pays  expenses. 
But  these  are  by  no  means  a  substitute  for  a  student  ac- 
counting. 

5  —  Its  boys  march  to  school,  the  older  bo}s  in  military  formation, 

the  younger  boys  trailing  along  but  in  formal  squads ;  the  girls 
all  go  together  in  a  long  line. 

6  —  The  girls  are  in  uniform  aprons,  even  to  the  upper  high  school 

years. 

7  —  Conversation  at  meals  in  the  central  dining  hall  is  said  not  to 

be  prohibited  but  it  is  sufficiently  discouraged  that  it  does 
not  take  place  —  obviously  an  educational  opportunity  lost ;  the 
reason  given  is  that  it  would  make  too  much  noise,  which 
reason  has  been  abandoned  by  progressive  children's  institu- 
tions. 

8  —  There  is  no  kindergarten  for  the  children  too  young  to  attend 

school :  they  are  divided  among  the  different  cottages  and 
are  taken  care  of  by  the  matrons  during  school  hours  and  by 
the  older  girls  at  other  times ;  at  meals  some  of  the  younger 
boys  are  cared  for  by  the  older  boys. 

9  —  The  physical  education  is  quite  inadequate,  as  previously  sum- 

marized. 
36 


562  REPORT  OF  JOINT  LEGISLATIVE  COMMITTEE 

10  —  The    management    is    not    familiar    with    the    management    of 

similar  institutions  either  by  observation  or  reading,  although 
of  capacity  and  temperament  which  would  greatly  benefit  from 
attending  conferences  and  visiting  best  institutions. 

1 1  —  Conversation  in  the  cottages  is  prohibited  except  at  the   free 

hour. 

12  —  By   1913  three  different  trustees,  according  to  the  auditor  of 

state,  had  automatically  resigned  from  the  board  by  absent- 
ing themselves  three  times  in  succession  from  board  meetings 
without  being  excused. 

13  —  A  fire  menace,  a  wooden  building,  is  continued,  although  the 

auditor  of  state  has  recommended  that  it  be  moved  to  an- 
other location  where  it  cannot  endanger  other  buildings. 

14  —  The  board  apparently  pays  no  attention  to  the  recommenda- 

tions of  the  auditor  of  state  as  to  improving  methods  and 
facilities  for  doing  the  school's  work. 

15  —  The   annual    report   gives   no    indication   of    attention   by    the 

trustees  to  the  problems  that  the  school  has  to  solve,  and  is 
quite  seriously  deficient  as  an  educational  report;  of  pages 
16  to  55,  less  than  one  page  is  given  to  schools,  including  near- 
ly twenty  pages  of  disbursements  that  are  of  no  use  to  anybody. 

16  —  The   school  teachers   have  no  responsibility   whatsoever  after 

school  hours. 

If  this  school  is  continued  it  would  be  possible  to  correct  many  of 
the  foregoing  deficiencies.  More  normal  living  is  possible  and  desirable 
without  additional  expense.  Young  children  need  not  go  to  school  in 
squads.  Recesses  will  help  the  school  work  ;  free  playtime  will  promote 
health  and  increase  interest  in  schooling;  physical  training  can  be  so 
attractive  that  children  will  not  be  tempted  to  run  away;  outdoor  gym- 
nastics and  interclass  contests  are  practicable ;  there  should  be  continuous 
physical  supervision  and  repeated  re-examinations;  it  is  not  necessary 
to  have  so  complete  a  divorce  between  school  and  after' school  time; 
salaries  should  be  such  that  all  the  matrons  and  school  teachers  will  be 
the  best  that  can  be  had  and  will  take  interest  in  most  progressive  in- 
stitutional methods. 

But  does  Ohio  wish  to  continue  this  particular  method  of  express- 
ing its  gratitude  and  obligation  to  soldiers  and  sailors  ?  The  state  is  not 
ready  to  answer  that  question.  It  is,  however,  ready  to  ask  it  and  to 
start  discussion  of  it. 

It  is  recommended  that  the  legislature  of  1921  ask  the  state  depart- 
ment of  ])ublic  instruction  and  the  Ohio  board  of  state  charities,  with 
the  help  of  one  ])ers()n  each  to  be  named  by  the  G.  A.  R.  and  the  Ameri- 
can Legion,  to  have  this  institution  visited  and  carefully  studied,  as  a 


ON    ADMINISTRATIVE   REORGANIZATION  563 

home  and  as  a  school,  and  to  report  hack  to  the  legislature  what  if  any 
modification  in  the  present  program  should  be  made. 

The  opportunities  given  at  this  school  are  very  much  less  than  those 
in  or  near  the  home  towns  of  the  overwhelming  majority  of  pupils  in 
this  school.  With  all  the  facts  before  them  the  members  of  the  Grand 
Army  of  the  Republic  and  of  the  American  Legion  would  undoubtedly 
decide  that  there  are  many  other  ways  of  helping  children  of  destitute 
or  needy  or  otherwise  unfortunate  soldiers  and  sailors  that  for  the  same 
money  would  reach  a  vastly  larger  number  of  children  and  would  give 
those  reached  vastly  larger  benefits. 


CITIZEN  CO-OPERATION  NEEDED  BY  DIRECTOR  OF 
WELFARE  ADMINISTRATION 


By  WILLIAM  H.  ALLEN 

In  a  state  which  has  centraHzed  its  welfare  administration  by  sub- 
stituting single  heads  for  boards,  and  few  departments  with  far  reaching 
powers  for  many  independent  departments,  there  is  danger  that  govern- 
ment organization  will  become  first  unaware  of  and  then  indififerent  to 
best  informed  public  opinion. 

The  public  that  is  interested,  and  may  be  further  interested,  in 
the  state's  work  for  health  of  mind  and  body  and  attitude  in  hospitals, 
industrial  schools,  reformatories,  and  penitentiaries  is  of  two  kinds : 
those  who  have  direct  personal  relation  with  the  institutions  and 
with  law  enforcement;  and  those  whose  interest  is  in  the  public 
welfare  rather  than  in  themselves  or  relatives. 

So  long  as  the  first  class  exists  in  such  large  numbers  as  are  directly 
concerned  in  Ohio's  management  of  23  institutions  having  25,000  in- 
mates, it  will  not  be  easy  for  institution  managers  to  perpetrate  gross 
abuses.  If  this  personal  interest  were  organized  it  would  be  all  the 
citizen  interest  that  is  needed.  vSuch  direct  personal  interest,  however, 
is  isolated,  unorganized  and  too  personal  to  become  an  important  factor 
in  shaping  and  leading  a  public  demand  for  better  state-wide  conditions 
and   more  progressive   management   of   institutions. 

It  is  the  second  class,  the  persons  whose  interest  is  public  not 
personal,  that  is  capable  of  organizing  itself,  of  analyzing  present 
methods,  of  challenging  present  results,  of  circulating  higher  ideals 
and  pertinaciously  demanding  improved  methods  and  enlarged  pro- 
grams by  state  officials.  Persons  that  have  no  friends  in  hospital  or 
I)rison  feel  freer  to  demand  and  keep  on  demanding  such  management 
of  state  institutions,  and  such  use  of  their  lessons,  as  will  eradicate  or 
greatly  reduce  conditions  that  make  for  mental  disease  crime  and 
poverty. 

For  mobilizing  this  second  class  of  citizen  interest  and  for  using 
the  suggestions  and  complaints,  the  griefs  and  hopes  of  the  first  class, 
Ohio  has  not  yet  sufficiently  organized.  There  are  many  private  charit- 
able agencies  extending  now  even  to  rural  counties.  The  State  Council 
of  Social  Agencies  contains  in  its  membership  leaders  from  the  most 
active  private  agencies  concerned  with  social  work  and  can  be  of  in- 
valuable aid  to  state  officers  and  the  public.  There  is  finally  a  state 
Social  Welfare  Conference,  the  importance  of  which  has  been  recognized 

564 


ON   ADMINISTRATIVE   REORGANIZATION  565 

in  laws  that  permit  county  and  state  institutions  to  pay  the  expenses  of 
workers  who  attend  these  annual  conferences.  Universities,  normal  col- 
leges and  public  schools  have  shown  a  desire  for  more  knowledge  re- 
garding social  work  and  more  opportunities  to  train  young  people  to 
think  straight  about  social  work  and  to  participate  in  it. 

With  these  agencies  the  welfare  administration  has  not  yet 
established  sufficient  definite  or  helpful  relations.  Officers  of  state 
institutions  are  not  in  the  habit  of  attending  or  benefiting  from  the  state 
welfare  conference.  Nor  have  they  been  fostering  and  using  the  inter- 
est of  private  agencies  and  citizens  in  their  needs.  While  university  visits 
have  been  welcomed  and  in  a  few  cases  active  help  has  been  welcomed, 
there  is  a  vast  store  of  helpfulness  by  university  and  normal  colleges 
which  a  director  of  welfare  administration  should  tap  and  apply. 

To  emphasize  the  helpfulness  of  civic  interest  to  the  official  man- 
agement of  state  institutions  and  to  emphasize  and  advertise  the 
obligation  of  these  agencies  to  act  independently  of  personal  rela- 
tions with  state  officers,  it  is  recommended: 

1  — That  the  state  board  of  charities  or  state  welfare  board  rec- 

ommended elsewhere  attempt  to  organize  for  asking,  secur- 
ing and  using  more  frequent  and  more  definite  suggestions 
from  all  private  and  public  agencies  connected  with  wel- 
fare work. 

2  —  That  the  state  board  of  charities   or  state   welfare  board  be 

recognized  in  the  law  as  merely  one  of  several  agencies 
instead  of  as  the  principal  directing  agency  of  the  state  wel- 
fare conference  and  that  the  conference  be  free  to  select  a 
secretary  other  than  the  state  board's  secretary. 

3  —  That  a  law  be  passed   stating  explicitly  that  citizens  may 

have  access  at  all  reasonable  hours  to  all  official  records  of 
public  welfare  agencies  including  the  state  agencies  and 
state  directoi-  of  welfare  administration;  and  that  if  such 
records  are  refused  a  citizen  or  citizen  agency  may  secure 
from  the  courts  an  order  authorizing  inspection.  It  is  not 
necessary  to  make  any  exemption  of  records  that  will  be 
open  to  the  public.  If  a  citizen  should  wish  to  examine  a 
public  record  for  no  public  purpose  but  for  the  private  pur- 
pose of  learning  certain  facts  about  certain  persons  whose 
relatives  have  been  treated  in  a  state  hospital  the  necessity 
of  making  application  to  the  courts  would  be  a  sufficient 
protection  against  abuse  of  this  right.  Among  the  official 
records  that  would  thus  be  open  to  the  public  would  be  any 
constructive  proposals  or  specific  criticisms  that  might  be 
sent  to  the  director  of  welfare  administration  or  one  of  the 
institutions  in  his  charge   by   private   citizens   or   agencies. 


PROPOSED  PENITENTIARY 

By  GAYLORD  C.  CUMMIN 


This  report  begins  with  your  committee's  question  whether  the  plans 
for  the  new  penitentiary  at  London  are  economical  and  ends  with  the 
conclusion  that  the  main  defect  is  not  in  any  detail  of  plans,  but  with 
the  proposal  to  meet  Ohio's  penitentiary  problem  by  spending  $8,500,000. 

The  people  of  Ohio  should  know  what  is  implied  in  this  proposed 
investment  for  housing  3000  persons  cinvicted  of  felony: 

It  is  almost  one-half  the  total  amount  now  invested  by  the  state 
in  institutions  for  the  care  of  defectives  whose  population  (1918) 
was  five  times  as  great  as  the  capacity  of  the  new  penitentiary. 

It  exceeds  by  one-fourth  the  total  investment  in  Ohio  state  uni- 
versity with  a  registration  of  more  than  twice  the  capacity  of  the 
proposed  penitentiary. 

It  is  within  $1,000,00  of  the  total  amount  invested  in  Ohio  state 
university,  Ohio  university  and  Miami  university,  which  together 
care  for  10,000  students. 

It  is  yj%  of  the  total  invested  in  rural  schools  in  Ohio. 

It  exceeds  the  entire  present  investment  of  the  state  in  correc- 
tional institutions  (penitentiary,  two  reformatories  and  two  industrial 
schools). 

The  walls  and  gates  will  cost  enough  to  pay  yearly  the  state's 
contribution  toward  ten  county  normal  schools. 

The  proposed  conservatory  will  cost  six  times  as  much  as  the 
average  school  building  and  thirty  times  as  much  as  the  average  rural 
school  building. 

The  proposed  administration  building  alone  'will  cost  nearly 
50%  more  than  the  state  house  annex  or  nearly  three  times  as  much 
as  the  Wyandotte  building. 

The  proposed  administration  building,  auditorium,  mess  hall  and 
kitchen  will  cost  more  than  the  stale  house. 

The  basis  for  these  figures  is  the  architect's  estimates  of  June,  1928, 
with  40%  added  to  cover  increased  cost  of  building  since  that  date.  Still 
higher  costs  are  in  prospect. 

A  few  high  spots  on  state  activities  show  that — 

I  — Mansfield  reformatory  for  younger  and  less  hardened  criminals 
is  more  crowded  and  has  more  men  idle  than  the  ])enitentiary 
for  the  older  and  hardened. 

566 


ON  ADMINISTRATIVE  REORGANIZATION  5^7 

2  —  The  employees  of  the  state  are  working  in  unsafe,  insanitary 

and  unfit  surroundings. 

3  —  Milhons  of  dollars  are  needed  for  schools  and  teachers'  salaries. 

4  —  The  institution  for  the  feebleminded  is  so  over-crowded  that 

additional  commitments  cannot  be  made,  over  a  thousand 
mental  defectives  now  awaiting  admission.  A  mental  defective 
at  large  is  a  greater  potential  danger  to  society  than  a  burglar 
or  highwayman. 

The  people  of  Ohio  should  ask  themselves : 

How  many  cities  of  3000  population  have  a  hospital  costing  $300,- 
000? 

How  many  cities  have  an  auditorium  costing  $430,000? 

How  many  free  citizens  worship  in  a  chapel  costing  $220,000? 

How  many  citizens  live  in  homes  costing  $38,000,  the  estimate  for 
warden's  residence;  $25,000,  the  estimate  for  deputy  warden's 
residence;  $21,000  the  estimate  for  chaplain's  residence? 

Whether  the  state  can  afiford  better  living  conditions  for  those  con- 
victed of  crime  against  the  state  than  for  those  unfortunates 
in  state  institutions  through  no  fault  of  their  own? 

Whether  the  state  owes  more  consideration  to  its  employees  or  to 
those  convicted  of  offenses  against  society? 

Whether  millions  should  be  spent  on  a  monumental  prison  when 
the  education  of  the  young  is  handicapped  by  lack  of  funds? 

Whether  convicts  should  have  better  living  and  working  conditions 
than  the  great  majority  of  free  citizens? 

Whether  millions  should  be  spent  to  correct  bad  conditions  in  the 
present  penitentiary  in  five  or  six  years  when  they  can  be  cor- 
rected in  six  months  for  a  small  fraction  of  the  amount? 

HISTORY  OF  THE  MOVEMENT  FOR  A  NEW  PENITENTIARY 

In  1906  Governor  Harris  appointed  a  commission  on  prison  reform. 
In    191 2   Governor   Cox   appointed   a   similar   commission   who   re- 
ported on  February  17,  1913. 

The  following  are  the  only  references  in  said  report  to  the  necessity 
for  a  new  penitentiary  and  are  the  only  reasons  in  published  reports  for 
the  state  obligating  itself  to  an  expenditure  of  approximately  eight  and 
a  half  million  dollars. 

"A  commission  was  appointed  by  Governor  Harris  under  au- 
thority of  a  joint  resolution  of  the  General  assembly  adopted  March 
31st,  1906  to  investigate  the  Ohio  penitentiary  problem.  The  com- 
mission called  to  its  aid  some  of  the  foremost  prison  men  of  the 
country,  and  after  careful  investigation  and  consideration  made  a 
report  containing  valuable  information  and  the  following  recom- 
mendation:     'The   commission   is   clearly   of   the   opinion   that   the 


568  REPORT   OF   JOIXT   LKGISLATIVF.    COMMITTEE 

State  of  Ohio  should  have  a  new  penitentiary  upon  a  new  site,  and 
that  it  should  be  located  on  a  large  tract  of  land  *  *  *" 

*  *  *  ''The  old  penitentiary  plant  *  *  '■■■  is  reasonably  fit  to 
serve  the  ordinary  purposes  of  a  prison  and  can  be  used  as  such 
for  a  number  of  years  to  come  without  disgrace  or  reproach  to 
the  state"  *  *  * 

"The  enforced  idleness  of  600  to  800  men  at  the  Ohio  Pen- 
itentiary is  the  most  serious  feature  of  the  penitentiary  problem, 
and  is  in  itself  a  complex  humanitarian  and  economic  problem  de- 
manding iuuncdiatc  solution." 

*  =>=  *  *  "Your  commission  found  factory  space  available  (in 
the  present  penitentiary)  in  which  at  least  three-fourths  of  the  idle 
population  can  be  employed."  *  *  * 

*  *  *  "The  acquisition  of  land  suitable  for  a  new  penitentiary 
and  the  beginning  of  the  work  of  creating  the  new  institution  ought 
not  to  be  delayed.  A  large  tract  of  land,  about  two  thousand  acres 
will  be  the  greatest  aid  to  a  right  solution  of  the  problem." 

The  commission  recommended  as  follows  : — 

3.  "That  an  act  be  passed  for  the  appointment  of  a  commis- 
sion with  authority  to  select  and  acquire  for  the  State,  by  purchase 
or  condemnation,  about  two  thousand  acres  of  land  for  a  new  peni- 
tentiary, the  location  to  be  not  too  near  any  city  and  not  too  far 
from  the  center  of  the  state;  transportation  facilities  are,  of  course, 
essential,  and  an  abundant  svipply  of  good  water." 

"Swamp  land  or  waste  land  capal)le  of  reclamation  would  have 
a  special  fitness  for  the  purpose;  clay  or  shale  suitable  for  brick- 
making  or  stone  for  a  quarry  would  be  desirable  features. 

"Plans  for  the  new  institution  should  be  perfected  by  the 
board  of  administration  with  the  best  expert  advice  and  assistance, 
as  soon  as  is  consistent  with  due  care  and  consideration;  the  work 
of  development  and  construction,  should  be  done,  as  far  as  possible 
with  prison  labor."  (This  wise  provision  has  apparentlv  not  been 
followed  in  carrying  out  the  plans.) 

In  accordance  with  this  recommendation  an  act  was  passed  author- 
izing the  appointment  of  a  commission  and  on  August  20,  191 3  Governor 
Cox  appointed  the  penitentiary  commission. 

This  commission  took  up  its  duties  and  selected  and  purchased  a 
site  containing  1448.5  acres  near  London  in  Madison  county. 

They  then  studied  the  requirements  of  the  institution  and  later  em- 
ployed architects  and  engineers  to  draw  uj)  jM-climinary  plans  and  to 
make  definite  recommendations  as  to  the  new  institution. 

The  result  of  these  studies  is  embodied  in  an  elaborate  report  en- 
titled "New  Ohio  Penitentiary,  Description  of  Preliminary  Drawings," 
to  which  frequent  references  will  be  made  throughout  this  report. 


ON   ADMINISTRATIVE  REORGANIZATION  5^9 

Briefly,  the  architects  recommend  the  purchase  of  additional  land 
amounting  to  1088  acres  of  which  325.24  have  been  purchased  since  the 
recommendation  w^as  made. 

The  plans  provide  for  an  elaborate  plant  of  large  and  well  con- 
structed buildings  of  brick,  concrete  and  steel.  A  list  of  the  principal 
ones  together  with  their  estimated  cost  of  June,  1918,  and  of  January 
I,  1920,  will  give  a  good  idea  of  what  is  proposed  and  is  as  follows: 

Jime  1I9I8       Jan.  1,  1920 

Administration  building $462,500  00  $647,500  00 

Interior  cell  blocks 485,000  00  679,000  00 

Exterior  cell  blocks 370,000  00  518,000  00 

Dormitories    170,000  00  238,000  00 

Utility   building    193,750  00  271,250  00 

Small  chapel    164,000  00  229,600  00 

Large  chapel  and  auditorium    310,000  00  434,000  00 

Dining  room  and  kitchen    306,000  00  428,400  00 

Connecting  corridors    : 118,800  00  166,320  00 

Hospital    212,500  00  297,500  00 

Conservatory    40,000  00  56,000  00 

Maintenance  building  165,000  00  231,000  00 

Small  factory  building    110,000  00  154,000  00 

Raw  material  warehouse    230,000  00  322,000  00 

Large   factory  building   560,000  00  784,000  00 

Finished  products  warehouse   144 ,  000  00  201 ,  000  00 

Power  house   240,000  00  336,000  00 

Stack    12,000  00  16,800  00 

Tunnel  system   (For  pipes,  etc.) 34,500  00  48,300  00 

Wall 164,000  00  229,600  00 

Guard   towers    1,200  00  1,680  00 

Gates    4,000  00  5,600  00 

Warden's    residence    27,000  00  37,800  00 

Deputy   warden's  residence    18,000  00  25,200  00 

Chaplain's  residence    15,000  00  21,000  00 

Dairy   barn    95,000  00  133,000  00 

Horse  barn 28,000  00  39,200  00 

Grading,    etc 353,800  00 

Water   supply    189,250  00 

Distribution  heat  and  electricity  160,610  00 

These  together  with  some  minor  items  exclusive  of  cost  of  site 
($363,340),  architects'  fees  ($56,000),  etc.  total  $5,746,310.00. 

Present  prices  would  make  site,  buildings,  etc.,  cost  about  $8,500,000 
of  which  perhaps  $1,500,000  might  be  saved  by  the  use  of  prison  labor 
if  very  efficiently  managed,  although  this  saving  is  more  apparent  than 
real,  as  the  same  men  could  be  used  upon  other  work  just  as  profitable 
to  the  state,  if  not  engaged  on  this  project. 

The  present  penitentiary  is  valued  at  $1,578,591.97  in  the  1918 
report  of  the  auditor  of  state.  If  this  full  value  could  be  realized  by 
sale  of  site,  buildings,  equipment,  etc.,  it  would  still  leave  the  cost  of  the 
pentientiary  at  present  prices  greater  than  the  original  estimate. 


5/0  REPORT  OF   JOINT  LEGISLATINE   COMMITTEE 


NECESSITY    FOR    NEW    PENITENTIARY 

After  the  report  of  the  commission  on  prison  reform  appointed  by 
Governor  Harris  a  large  amount  of  money  was  spent  on  the  old  peniten- 
tiary and  it  was  made  reasonably  sanitary  in  spite  of  its  great  age.  The 
report  of  the  commission  appointed  by  Governor  Cox  points  out  that  the 
present  plant  can  be  used  for  a  number  of  years  without  reproach  to  the 
state.  They  also  report  some  overcrowding  and  from  six  to  eight  hun- 
dred without  work.  These  conditions  are  serious  and  should  and  could 
have  been  corrected  at  once,  but  at  the  present  time,  seven  years  later, 
the  conditions  complained  of  still  exist.  At  present  there  are  over  four 
hundred  cells  occupied  by  two  men  each,  which  is  serious,  as  it  leads 
inevitably  to  fighting  and  immorality,  and  there  are  about  four  hundred 
idle  or  working  on  jobs  where  they  are  not  needed.  There  are,  roughly, 
two  hundred  and  fifty  prisoners  receiving  instruction  in  school  where 
many  more  would  take  advantage  of  such  opportunities  did  they  exist. 
Seven  years  have  passed  and  many  more  years  will  pass  before  a  new 
penitentiary  can  correct  the  present  conditions. 

The  average  population  resident  in  the  Ohio  penitentiary  for  the 
year  ending  June  30,  1918,  was  two  thousand,  the  maximum  at  one  time 
being  2078.  The  new  penitentiary  is  planned  for  a  capacity  of  3,000 
prisoners,  and  is  designed  on  a  unit  plan  to  be  built  as  needed.  It  must 
be  realized,  however,  that  even  on  a  unit  plan  a  cost  of  two-thirds  ca- 
pacity will  run  from  four-fifths  to  five-sixths  the  cost  for  entire  capacity. 

A  tabulation  of  the  growth  of  prison  population  in  the  last  nineteen 
years  shows  that  if  the  same  rate  of  growth  continues  the  capacity  of 
the  new  penitentiary  will  be  reached  about  the  year  A.  D.  2020.  Plan- 
ning ahead  for  a  generation  seems  liberal  enough  but  for  one  hundred 
years  is  beyond  reason.  We  are  not  in  a  position  to  even  guess  at  prison 
needs  one  hundred  years  from  now. 

There  is  every  reason  to  believe  that  there  will  be  a  smaller  rate  of 
increase  in  prison  population  in  the  future  than  in  the  past,  if  not  a  posi- 
tive decrease.  The  trend  of  modern  thought  is  toward  the  treatment 
of  the  mentally  defective  criminal  in  separate  institutions.  The  state 
should  seriously  consider  the  scientific  study  of  the  mental  condition  of 
prisoners  in  the  correctional  institutions,  and  provision  for  placing  those 
found  to  be  mentally  defective  in  institutions  for  the  feeble  minded  or 
the  criminally  insane.  Such  action  would  result  in  relieving  very  ma- 
terially the  crowded  condition  of  the  present  correctional  institutions. 
With  the  mentally  deficient  removed  a  much  larger  number  of  prisoners 
could  be  paroled  successfully.  The  fact  that  there  is  now  nothing  to 
prevent  the  parole  of  the  mentally  incompetent  prisoner  is  responsible 
for  a  great  amount  of  the  trouble  with  the  present  parole  system.  No 
mental  defective  should  ever  be  paroled.  The  coming  of  prohibition, 
based  upon  experience   in   other  states   where   prohibition  has  been   in 


ON  ADMINISTRATIVE  REORGANIZATION  57^ 

effect  for  a  long  period,  will  serve  to  still  further  cut  down  prison 
population.  The  state  is  therefore  faced  with  a  strong  probability  of 
an  actual  steady  decrease  in  prison  population  instead  of  an  increase. 

Conditions  have  entirely  changed  from  those  existing  in  1913  and 
may  change  still  more  in  the  next  ten  years.  We  are  in  a  new  world 
with  new  conditions  and  new  problems.  Methods  of  handling  the  crim- 
inal are  in  a  constant  state  of  flux.  Is  the  state  justified  in  proceeding 
with  an  expenditure  based  upon  conditions  which  no  longer  exist?  Is 
it  not  better  to  go  slow,  correct  the  present  objectionable  conditions 
promptly  and  at  as  low  a  cost  as  pcszible,  ?^iu  await  developments? 

The  penitentiary  commission  was  orderd  to  secure  a  site  and  make 
plans  for  a  new  institution.  This  they  have  done  and  done  well  when 
their  instructions  are  taken  into  consideration,  but  the  plans  are  drawn 
as  if  the  state  of  Ohio  had  no  duties  or  activities  except  the  paternal  care 
of  those  convicted  of  felony.  The  result  of  their  work  is  a  fine  example 
of  the  danger  of  appointing  a  separate  commission  for  such  work.  They 
see  their  problem  by  itself  and  not  as  a  part  of  the  entire  state  problem. 
As  a  magnificent  monument  the  plan  is  defensible;  as  a  solution  of 
Ohio's  penitentiary  problem  it  is  nothing  less  than  a  crime. 

It  will  be  urged  that  the  proposed  penitentiary  will  be  a  great  manu- 
facturing institution  and  will  be  self-supporting.  The  "profits"  shown 
in  1918  would  have  to  be  multiplied  by  eight  to  pay  the  fixed  charges 
on  the  new  plant  and  this  is  certainly  improbable.  Allowing,  for  the 
sake  of  argument,  that  the  institution  will  be  self-supporting,  is  it  neces- 
sary to  go  to  the  proposed  expense  in  order  to  get  such  results?  Could 
the  objectionable  conditions  be  remedied  more  promptly  at  a  lower  cost? 

THE  PROBLEM  AND  ITS  SOLUTION 

Boiled  down  to  its  fundamentals  the  problem  of  the  Ohio  peniten- 
tiary is,  (i)  providing  more  room  for  housing  about  450  men;  (2)  pro- 
viding additional  work  for  about  400  men;  (3)  doing  this  as  promptly 
and  with  as  little  expense  as  possible. 

It  is  therefore  recommended: 

1  —  That  additional  living  quarters  be  provided  at  the  London  farm 

for  about  100  men  in  the  form  of  a  wooden  dormitory  sur- 
rounded by  a  barbed  wire  fence. 

2  —  That  additional  quarters  of  similar  character  be  provided  at 

the  state  brick  plant  for  about  150  men  and  additional  brick 
making  equipment  be  installed,  if  necessary. 

3  —  That  several  semi-portable  rock  crushing  outfits  be  provided 

and  rock  quarries  opened  for  crushing  rock  for  road  work, 
the  convicts  being  housed  in  "knock  down"  frame  barracks  sur- 
rounded by  barbed  wire  fences. 


57^  REPORT   OF  JOINT  LI'X.ISr.ATnri   COMMITTEE 

This  plan  will  house  the  convicts  as  well  as  our  soldiers  were  housec 
in  their  training  camps,  and  will  provide  useful  work  which  the  state 
needs.  The  brick  manufacturers  and  broken  stone  manufacturers  will 
probably  fight  any  effort  to  use  convict  labor  in  this  kind  of  work  but 
that  is  no  reason  why  it  should  not  be  done.  The  private  companies  are 
not  going  to  be  able  to  furnish  enough  brick  for  the  road  program  this 
year  anyway,  and  if  the  state  starts  such  manufacture  on  a  large  scale 
it  will  be  able  to  build  more  brick  road  than  would  otherwise  be  possible. 
The  amount  of  architects'  fees  paid  for  the  preliminary  plans  ($36,000) 
would  go  a  long  way  toward  carrying  out  these  recommendations. 

4  —  That  the  board  of  administration  be  asked  to  study  the  poss'- 

bility  of  opening  a  coal  mine  for  the  supply  of  state  institutions, 
to  be  operated  by  convicts.  Ohio  is  a  great  coal  state.  State 
institutions  use  a  large  amount  of  coal  annually.  The  state 
has  a  surplus  of  prison  labor.     Q.  E  D. 

5  —  That  the  state  try  to  purchase   from  the  federal  government 

either  Wright  Field  or  Camp  Sherman,  should  either  be  aban- 
doned. 

These  camps  have  sewer  systems,  water  supply,  electric  power, 
heating  system,  roads,  cell  blocks,  dormitories,  hospitals,  work- 
shops, warehouses  and  f^rm  land.  If  the  privilege  of  meeting 
the  highest  private  bid  for  these  plants  be  granted  the  state, 
they  can  be  secured  at  a  small  fraction  of  their  value.  If  part 
of  the  ground  is  leased,  extend  the  lease.  Tear  down  buildings 
not  needed  with  convict  labor  and  re-erect  for  dormitories  at 
brick  plant,  London  farm.  Re-erect  others  at  state  institutions 
to  relieve  present  congestion.  Re-erect  others  as  rural  schools, 
community  buildings,  etc.  in  country  districts,  charging  the 
county  or  school  district  the  cost  to  the  state  of  building  and 
labor.  Use  the  camp  site  itself  as  a  penal  farm  colony.  The 
convicts  will  then  be  as  well  cared  for  and  housed  as  were  our 
soldiers  in  the  training  camps.  They  should  be  able  to  stand 
this  without  injury. 

6 — -Take  immediate  steps  to  have  mental  condition  of  convicts 
tested  and  place  the  mental  defectives  in  the  proper  institutions. 

This  is  discussed  in  the  body  of  the  report. 

These  defectives  should  not  be  in  a  penitentiary  anywa) 
and  should  not  be  eligible  to  parole,  nor  should  they  ever  be 
freed  from  proper  institutional  care.  The  freeing  of  tb" 
mentally  defective  is  a  greater  menace  to  the  well  being  or 
the  state  than  the  freeing  of  the  most  hardened  criminal. 

7  —  Abolish    the   penitentiary   commission,    and    return    the    unex 
pended  balance  of  their  appropriation,  $737,083.66  Jan.   I9tli 


ON  ADMINISTRATIVE  REORGANIZATION  573 

1920,  and  the  remainder  of  the  $500,000  appropriated  for  the 
biennium  1919-1921  (about  $450,000)  to  the  general  fund. 
Cease  work  on  carrying  out  new  penitentiary  plans. 
■  Have    the    board    of    administration    estimate    the    neceslsary 
amount  of  money  to  carry  out  recommendations  as  above  and 
make  such  appropriation. 


APPENDIX  A 
OHIO  PENITENTIARY  COMMISSION, 

Tentative  Classification  of  Disbursements,  October  2,  1913  to 
February  5,  1919. 

Purchase  of  land $292,540  00 

Abstract   of  title    300  00 

Architect  fees    56,000  00 

Architect   landscape    2,809  75 

Olmstead    Bros 358  35 

Engineers   surveys  and  maps    3,837  90 

Timber  surveys  and  estimates    372  00 

Attorneys    fees    1.500  00 

Ten  viewers  as  witnesses   50  00 

Salaries    100  00 

Traveling  expenses    > 3 , 5.^6  10 

Guide  —  wages    ; 30  00 

200   Blankets    400  00 

Carpenter   work    1 .  838  38 

Equipment    1,029  90 

Books ,    stationery  and  pr.iiting   39  79 

Stenographer     206  70 

Engines     saw  mill  and   machinery    1,210  51 

Building  materials   9,426  96 

Paint  and   oil    213  47 

Pumps ,    pumping  and   wells    693  92 

Freight  and  Drayage il,897  27 

Water  tank,    and  tower    762  90 

Soil   analysis    71  75 

Two  brood   sows H"^  00 

Witness  fees 9  10 

Unclassified    1,019  06 

Total  Oct.  29,   1913  to  Feb.  5,  1919 $380,394  61 

Total  Feb.  6,   1919  to  Jan.  19.   1920   (unclassified) 143,044  92 

Total  disbursements    $523,439  53 


574 


REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 


OHIO  PENITENTIARY  COMMISSION, 

Appropriations  and  Disburskments,  Octo]!er  29,   1913  to  January   19,   1920. 

Appropriations    Fiscal  Year  Disbursements  Lapsed            Balance 

$250,000  00    Ended   Nov.   15,    1913 $20197  $249,798  03 

25,000  00     Ended    Nov.    15,    1914 256,300  11  $2,500  00          15,997  92 

Ended  June  30,   1915 13,782  94  2,214  98           2,214  98 

10,000  00    Ended  June  30,   191C 100  54  9,899  46 

Ended  June  30,    1917 7,972  48  1,926  98 

380,000  00    Ended  June  30,   1918 8,417  16  373,509  82 

50,000  00    Ended  June  30,  il919 139,54188  51183        283,456  11 

50,750  00    To  Jan.  19,   1920 97,122  45  237,083  66 

Total  disbursements    $523,439  53 

Total    lapsed    5,220  81  *5,22G  81 

Balance  Jan.   19,    1920 237,083  66 

$765,750  00  $765,750  00 


APPEHDH  B 


/$4500 


2000 


Curve  Bhowlng   Investment  per   Inmate  of  different    Institutions 

oomparod  with  total    Inmated  of  all    Institutions    In  1918. 

©Hospital  for    Insane  and  epileptics. 

-f  Ohio  aanatorlun  for  tuberoolosls. 

X  Homes  for  wards  of  the  state. 

Q  Correotlonal    Institutions. 

^New  penitentiary  -  2,000  capacity, 
(four-fifths  expenditure) 

flew  penitentiary  -  3,000  capacity. 


NUMBER    OF  INMATES 


ADMINISTRATIVE  REORGANIZATION  IN  OTHER  STATES 

(THAN  OHIO) 
By  C.  B.  GALBREATH 

To  the  Joint  Legislative  Committee  on  Administrative  Reorganization: 

At  the  outset  of  the  work  undertaken  by  the  joint  legislative  com- 
mittee on  administrative  reorganization  it  was  deemed  important  to  know, 
in  a  general  way  at  least,  what  had  been  undertaken  and  accomplished 
by  other  states  that  had  attempted  investigations  similar  to  that  contem- 
plated in  the  resolution  creating  your  committee.  Arrangements  were  ac- 
cordingly made  for  a  systematic  study  of  the  work  in  other  states  in  order 
that  each  member  of  the  committtee  might  have  before  him  a  summary 
of  information  available.    The  result  is  embraced  in  the  following  pages. 

It  will  be  noted  that  frequent  quotations  have  been  made  from  re- 
ports and  laws  of  other  states.  This  has  been  done  in  order  that  there 
may  be  nd  mistake  in  regard  to  conclusions  reached.  There  have  been 
popular  misapprehensions  and  misunderstandings  in  regard  to  the  work 
in  some  states,  based  evidently  upon  inaccurate  statements  as  to  what 
was  actually  accomplished.     A  few  instances  are  here  noted. 

The  news  was  heralded  abroad  through  the  public  press  that  the 
state  of  Kansas  had  adopted  the  "state  manager  plan"  which  was  ex- 
plained to  be  simply  the  "city  manager  plan"  extended  to  an  entire  state. 
The  study  of  Kansas  prepared  under  the  direction  of  your  committee 
shows  that  this  was  incorrect,  although  a  substantial  and  very  satisfactory 
reform  was  accomplished  in  that  state  under  the  direction  of  a  business 
manager  for  its  benevolent  and  educational  institutions. 

The  statement  has  frequently  been  published  that  Illinois  has  abol- 
ished 125  separate  and  distinct  administrative  agencies  and  has  estab- 
lished in  place  of  them  nine  departments  of  state  government  with  a 
director  at  the  head  of  each.  It  will  be  noted  that  while  the  state  gov- 
ernment of  Illinois  was  reorganized  under  the  nine  departments  prac- 
tically none  of  the  pre-existing  agencies  have  been  abolished.  They  have 
been  subordinated  under  nine  directors. 

An  ofificial  report  published  one  year  ago  is  authority  for  the  state- 
ment that  Nebraska  has  consolidated  her  state  offices,  boards  and  com- 
missions without  giving  additional  appointive  power  to  the  gov- 
ernor. A  careful  reading  of  the  code  adopted  by  that  state  shows  that 
the  governor  is  given  authority  to  appoint  every  administrative  officer 
and  employe  in  the  state  from  the  humblest  janitor  to  the  heads  of 
departments. 

In  view  of  these  facts  and  others  of  somewhat  similar  character  it 
has  been  thought  best  to  let  official  reports,  statements  and  communica- 

575 


576  REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 

tions  from  the  different  states  tell  the  story  of  what  has  been  ac- 
complished. This  the  summaries  on  the  following  pages  have  attempted 
to  do. 

The  governor  of  Illinois  is  quoted  as  having  said,  in  advocating  ad- 
ministrative reorganization  for  his  state,  "Of  course,  there  was  much 
opposition  by  some  of  the  political  friends.  They  did  not  like  to  see 
these  attractive  places  given  up".  In  this  statement  the  governor  sug- 
gests one  of  the  chief  difficulties  to  be  encountered  in  any  plan  for  ad- 
ministrative consolidation  that  would  eliminate  existing  positions. 

It  is  reported  that  when  the  secretary  of  war  recently  proposed 
the  abolition  of  about  five  hundred  positions  in  his  department  he  re- 
ceived protests  within  two  or  three  days  from  the  friends  of  those  hold- 
ing more  than  half  of  these  positions.  This  is  not  at  all  surprising  and  he 
probably  later  received  protests  from  the  friends  of  practically  all  of 
those  whose  positions  were  involved. 

In  Ohio  quite  recently  when  an  increase  of  salaries  for  state  em- 
ployes was  under  consideration  it  was  suggested  that  the  money  to  pay 
the  increased  salaries  might  in  part  at  least  be  provided  for  by  the 
elimination  of  certain  positions  that  were  not  absolutely  necessary.  It 
was  found,  however,  in  a  very  short  time  that  this  plan  could  not  be 
carried  out.  Every  employe  was  certain  that  his  position  was  necessary. 
His  friends  were  in  cordial  agreement  and  the  chief  of  his  department 
was  usually  more  than  willing  to  lend  his  support.  As  a  result  salaries 
were  increased  without  discrimination  and  all  positions  were  conceded 
to  be  necessary. 

It  is  doubtless  true  that  the  popular  outcry  against  appointive  officials 
and  employes  in  the  midst  of  political  campaigns  is  in  a  large  measure 
unwarranted.  It  would  be  popular,  of  course,  to  abolish  fifty  or  sixty 
positions  and  substitute  for  them  five  or  six  at  moderate  salaries,  but 
this  could  not  be  done  unless  much  work  that  the  people  insist  upon  hav- 
ing the  government  do  were  abandoned.  This  has  not  been  done  in  any 
state  and  there  is  really  little  to  encourage  the  belief  that  it  will  be 
seriously  attempted. 

It  is  equally  true  that  there  are  some  positions  that  could  be  abol- 
ished without  injury  to  the  state's  service  and  that  there  are  others  filled 
by  persons  who  are  not  qualified  to  earn  an  adequate  return  for  their 
salaries.  Under  our  existing  system,  however,  it  is  found  extremely  dif- 
ficult to  safeguard  the  interests  of  the  state  where  such  conditions  exist. 
The  civil  service  system  was  designed  in  large  measure  to  correct  such 
conditions  and  much  has  been  accomplished  through  this  agency,  but 
it  is  everywhere  assailed  by  those  who  wish  to  administer  the  affairs  of 
the  state  while  they  hold  office  in  accordance  with  their  own  judgment 
and  interest,  free  from  all  interference  however  worthy  its  purpose. 

Reference  is  made  to  these  matters  simply  to  show  the  difficulties  thai 
beset  any  system  of  government  reorganization  that  contemplates  a  sub 


ON  ADMINISTRATIVE  REORGANIZATION  577 

stantial  reduction  of  officholders  and  appointees.  In  actual  practice  it 
will  be  found  much  easier  to  reorganize  state  government  with  no  thought 
of  salary  reduction  and  with  the  single  purpose  of  readjusting  the  ad- 
ministrative agencies  of  the  state  in  the  interest  of  greater  efficiency. 
This  seems  to  have  been  the  course  pursued,  with  slight  variations,  in 
those  states  that  have  made  substantial  changes  in  their  administrative 
codes. 

ALABAMA 

On  February  13,  1915,  the  legislature  of  the  state  of  Alabama 
passed  a  resolution  authorizing  the  appointment  of  three  members  of 
the  senate  and  five  members  of  the  house,  by  the  presiding  officer  of 
each,  to  investigate  "each  and  every  department  of  state,  and  properties 
thereof,  the  expenditures  therein,  for  what  purpose  and  how  paid ;"  to 
search  for  evidence  of  waste  of  public  funds  and  to  investigate  the 
administration  cf  the  free  text  book  law. 

The  speaker  of  the  house  of  representatives,  by  the  terms  of  the 
resolution  was  made  ex-officio  member  of  the  committee. 

A  report  was  made  to  the  legislature  July  13,  191 5.  This  report 
was  devoted  chiefly  to  the  following  subjects : 

"Recommendation  for  state  budget  and  accounting  system ; 

The  care  of  convicts ; 

The  department  of  agriculture  and  education ; 

The  railroad  commission ; 

A  state  purchasing  department ; 

Expense  accounts  of  Governor  Emmett  O'Neil." 

The  report  is  frank  in  some  instances  almost  to  the  verge  of  harsh- 
ness. The  department  of  agriculture  is  exhibited  in  the  following 
fashion : 

"In  this  department  we  have  found  evidence  of  spoils,  graft 
and  corruption.  'The  department  of  pure  food  and  drugs  during  the 
past  four  years  instead  of  being  used  for  the  purpose  of  protecting 
the  public  from  impure  food  and  drugs,  has  served  as  a  means  of 
a  systematic  scheme  of  robbery  and  thievery.     *     *     *     * 

"The  office  system  of  this  department  and  the  method  of  ac- 
counts and  book-keeping  are  antiquated,  loose  and  utterly  out  of 
accord  with  the  demands  of  modern  appliances.  The  corruption, 
embezzlement  and  graft  herein  disclosed,  which  has  run  through 
this  department  like- a  scarlet  thread,  is  the  tragic  evidence  of  the 
deficiency  of  our  business  system." 

The  immigration  department,  which  Avas  overhauled  by  this  commit- 
tee, comes  in  for  scathing  arraignment.     Here  are  a  few  extracts: 

"Within  the  past  four  years  $42,000  of  the  people's  money  have 

been  expende'd.     We  have  not  been  able  to  find  that  the  state  of 

Alabama  ever  realized  one  cent  on  this  investment.     Not  only  was 

this  amount  a  total  loss  of  the  taxpayers'  money,  but,  in  addition, 

37 


5/8  KEi'ORT   UK   JOINT  LEGISLATIN  E    COMMlTTIiE 

the  office  has  been  used  as  a  means  for  embezzlement.  The  profligacy 
and  waste  of  the  pubHc  funds  through  this  department  can  be 
denominated  nothing  less  than  criminal     *     *     *     * 

"The  evidence  has  disclosed  that  the  commissioner,  at  the  ex- 
pense of  the  state,  took  frequent  trips  to  San  Francisco,  Chicago, 
and  other  points.  One  of  these  trips  cost  the  state  $265.  On  another 
occasion  over  $1700  was  expended  for  an  exhibit  of  a  few  ears  of 
corn  at  the  Chicago  land  show.  At  this  time  a  vaudeville  perform- 
ance was  conducted  by  the  commissioner  at  the  expense  of  the 
state     *     *     *     *_ 

"The  report  of  this  department  would  be  comical  if  it  were  not 
so  tragic." 

Other  departments  of  the  state  government  of  Alabama  fared  little 
better  at  the  hands  of  this  committee,  while  still  others  were  more 
fortunate.  Some  critics  outside  of  the  state  have  regarded  the  report 
as  evidence  that  the  committee  was  on  a  'graft  hunt,'  rather  than  a  mis- 
sion to  lay  constructive  foundation  for  the  improvement  of  administra- 
tive conditions  in  Alabama.  Whatever  the  animus  of  the  committee 
and  the  antecedent  political  causes  leading  to  its  creation,  the  agitation 
so  vigorously  started  seems  to  have. inured  to  the  benefit  of  the  state. 
The  law  enacted  early  this  year,  while  not  effecting  a  very  radical  re- 
organization of  the  state  government,  has  provided  safeguards  against  the 
loose  business  methods  which  formed  the  burden  of  the  complaint  in  the 
report  of  1915. 

The  legislature  of  Alabama  at  its  recent  regular  session  enacted  a 
law  which  was  approved  February  13,  1919,  creating  a  state  board  of 
control  and  economy.    The  title  of  the  act  reads  as  follows : 

"To  create  a  state  board  of  control  and  economy  ;  to  provide 
members  thereof,  their  tenure  of  office,  salaries,  duties  and  mode 
of  appointment,  and  to  prescribe  rules  and  regulations  governing 
the  said  board." 

Section  i  of  the  act  reads  as  follows : 

"Section  i.  That  there  be  and  is  hereby  established  a  state 
board  of  control  and  economy  consisting  of  three  members,  one  to 
be  chairman  and  the  other  associate  members,  to  be  appointed  by 
the  governor.  One  of  the  associate  members  shall  be  designated  by 
the  governor  as  secretary  to  the  board.  The  members  to  hold  office 
at  the  will  of  the  governor  and  be  subject  to  removal  by  him  in 
his  discretion  when  in  his  opinion  the  public  good  requires  it ;  and 
if  not  sooner  removed  the  holding  of  the  position  of  chairman  shall 
terminate  at  the  end  of  four  years  from  date  of  appointment  and 
if  any  one  of  the  associate  commissioners  is  not  sooner  removed  the 
holding  of  his  position  shall  terminate  at  the  end  of  two  years  from 
the  date  of  appointment.  In  case  of  removal  by  the  governor  or  the 
termination  of  the  holding  of  any  of  said  members  by  lapse  of  time, 
the  governor  shall  aj)])oint  another  chairman,  associate  member  or 
members  as  the  case  may  rcMiuire.  each  of  wliom  sliall  hold  the  office 


ON  ADMINISTRATIVE  .REORGANIZATION  579 

to  which  he  is  appointed  subject  to  the  same  power  of  removal  in 
the  governor,  and  the  governor  on  naming  successors  thereafter  to 
fill  any  vacancy  occurring  by  lapse  of  time,  or  by  removal  of  the 
governor,  may  prescribe  the  time  the  holding  may  continue  under 
said  appointment  and  when  it  shall  terminate  by  lapse  of  time  if 
there  be  not  an  earlier  removal  by  him  in  his  discretion.  The  chair- 
man of  the  board  shall  receive  as  compensation  for  his  services  at 
the  rate  of  $500  per  month  for  the  time  that  he  actually  holds  his 
position  and  the  associate  members  shall  receive  compensation  for 
their  services  at  the  rate  of  $333.33  per  month  for  the  time  actually 
served." 

The  board  thus  created  has  to  do  chiefly  with  the  financial  affairs 
of  the  state.  It  is  given  authority  to  expend  all  moneys  appropriated  for 
eleemosynary  and  charitable  institutions ;  to  cooperate  with  the  governing 
boards  of  such  institutions;  to  control  and  fix  the  compensation  of  all 
officers  and  employes  in  these  institutions ;  to  purchase  all  supplies  for  all 
administrative  activities  of  the  state,  including  educational  institutions; 
to  adopt  rules  and  regulations  with  the  approval  of  the  governor,  for 
conducting  the  state's  business ;  to  keep  a  complete  and  accurate  inven- 
tor}' of  all  state  property  except  books  purchased  for  the  library. 

The  board  of  control  and  economy  does  not  have  authority  to  fix 
the  compensation  of  officers  and  teachers  of  purely  educational  institu- 
tions of  the  state,  nor  does  it  have  power  to  select  superintendents, 
managers  and  employes  of  charitable  and  eleemosynary  institutions.  Tt 
does  have  power,  however,  to  remove  "any  such  superintendent,  manager 
or  other  employe  *  *  *  whenever  in  the  opinion  of  the  board  the  inter- 
est of  the  institution  requires  it." 

It  is  evidently  the  purpose  to  economize  by  giving  this  board  com- 
plete control  over  all  expenditures  by  the  administrative  agencies  of  the 
state. 

CALIFORNIA 

Governor  William  D.  Stephens  of  California,  on  November  25. 
1918,  appointed  a  committee  of  eleven  members  "to  survey  the  activities 
of  state  government  and  report  upon  the  practicability  of  introducing 
economies  in  administration."  This  committee  consisted  of  the  state 
controller,  attorney  general,  three  members  of  the  state  board  of  control 
and  six  citizens,  one  of  whom  is  president  of  the  commonwealth  club  of 
California  and  another  of  whom  is  a  former  United  States  senator.  The 
committee  was  asked  to  make  a  study  of  the  problems  of  economy  and 
efficiency  in  state  offices  and  to  report  to  the  governor  on  the  following 
points : 

I — The   statute  under  which   each  department,  bureau   and   com- 
mission is  organized. 
2  —  The  powers,  duties  and  internal  organization  as  provided  by 
law,  and  in  fact  exercised. 


580  REPORT   OF   JOtXT   Li:c,ISL.\Tl\  K    COMMITTEE 

3  —  To  what  extent  powers  and  duties  overlap  and  duplicate. 

4 —  Analysis  and  comparison  of  appropriations  and  expenditures. 

5  —  Recommendations. 

Following  are  excerpts  from  the  instructions  of  Governor  Stephens 
to  the  committee : 

"During  the  past  few  years  California's  government  has  been 
practically  reconstructed.  We  have  experienced  a  development  along 
social,  humanitarian  and  industrial  lines  which  for  so  short  a  period 
surpasses  the  history  of  like  achievement  in  any  other  state.  But 
exactly  the  same  results  follow  in  governmental  development  as 
follow  expansion  in  private  business,  and  as  in  private  business, 
after  grow^th  and  development,  we  must  remove  all  extraneous 
expenses  and  practice  the  strictest  economy  in  carrying  on  the  state's 
activities.  If  there  be  debris  and  structural  staging  necessary  to 
the  work  of  building  but  unnecessary  and  expensive  to  proper  main- 
tenance, such  non-essentials  must  be  removed. 

"Necessarily  in  grappling  with  the  big  industrial,  economic,  and 
social  problems  governmental  activities  have  grown  up  more  or 
less  independent  of  each  other  with  inevitable  over-lapping.  What 
we  want  to  know  is  the  extent  of  this  overlapping,  and  the  possible 
saving  to  the  people  in  cost  of  government  without  injury  to  the 
public  service." 

The  committee  made  its  report  to  the  governor  under  date  of 
March  12,  1919.  In  its  formal  report  the  committee,  through  its  chair- 
man, said : 

"The  recommendations  submitted  embody  fundamental  prin- 
ciples of  governmental  management  which,  when  put  into  force, 
we  believe,  wall  not  only  make  for  immediate  improvement  in  the 
administration  of  the  state's  afifairs,  but  will  be  the  foundation  upon 
which  any  future  expansion  of  the  state's  activities  may  rest. 

"The  time  limitation  placed  upon  the  work  of  the  committee, 
in  order  that  its  report  might  be  in  your  hands  in  time  for  presenta- 
tion by  you  to  the  legislature,  has  not  permitted  the  making  of 
recommendations  for  changes  other  than  those  which  can  be  put 
into  effect  immediately  by  legislative  enactment.  It  is  at  once  ap- 
parent, therefore,  that  the  committee  has  not  exhausted  the  subjects 
covered  by  your  letter,  and  that  it  would  have  been  impossible  to 
exhaust  them  in  the  time  at  our  disposal.  Nevertheless  if  the  recom- 
mendations contained  in  the  report  are  carried  out  the  proposed 
readjustments  will,  in  our  opinion  greatly  increase  the  efficiency  of 
the  state  government,  and  this  at  a  cost  of  approximately  $550,000 
less  per  biennial  period." 

In  describing  its  method  of  procedure  the  committee  makes  the 
following  statement: 

"A  tentative  plan  for  the  grouping  of  the  state's  activities  into 
eleven  functional  groups  was  outlined  and  provision  made  for  the 
study  of  these  groups  through   the  medium  of  five   subcommittees 


ON  ADM[XISTRATIVK  REORGANIZATION  5^1 

composed  of  members  of  the  general  committee  and  associate  mem- 
bers chosen  from  persons  throughout  the  state  for  their  recognized 
abihty  and  famiharity  with  the  problems  to  be  studied  by  the  com- 
mittees to  which  they  were  appointed." 

Then  following  the  names  of  the  subcommittees  and  the  names  of 
211  associate  members  who  assisted  in  the  survey,  the  report  proceeds: 

"A  communication  was  sent  to  every  state  department,  board 
and  commission  requesting  that  the  committee  be  furnished  with  the 
following  information : 

1 .  What  are  your  powers,  duties  and  internal  organization 
as  provided'  by  law,  and  in  fact  exercised  ? 

2.  To  what  extent  do  the  powers  and  duties  of  your  depart- 
ment overlap  and  duplicate  those  of  another? 

3.  What  changes,  if  any,  do  you. believe  could  be  made  in 
your  department  in  order  that  the  work  might  be  carried 
on  most  effectively  and  in  the  most  efficient  and  economical 
manner? 

4.  What  other  suggestions  have  you  in  mind,  relating  either 
to  your  own  department  or  to  the  state's  business  as  a 
whole,  that  will  make  for  a  more  efficient  administration 
of  the  afifairs  of  the  state? 

"The  various  agencies  of  the  state  answered  in  great  detail. 
After  the  receipt  by  the  committee  of  the  replies  the  subcom- 
mittees with  associate  members  held  hearings  in  Sacramento,  San 
Francisco  and  Los  Angeles,  to  which  were  invited  the  representatives 
of  the  various  boards,  commissions  and  departments,  together  with 
those  citizens  who  had  expressed  interest  in  the  subjects  under  dis- 
cussion, and  the  general  public  At  the  hearings  the  fullest  and  freest 
opportunity  was  given  for  the  expression  of  ideas  and  views,  to 
which  full  consideration  was  given  later  by  the  committee." 

From  the  information  gathered  through  the  questionnaires  sent  to  the 
different  state  departments,  the  committee  prepared  a  "review  of  the 
organization  and  functions  of  all  existing  agencies  of  government  ar- 
ranged in  functional  groups."  This  is  introduced  by  a  summary  of  the 
arrangement  with  the  agencies  classified  under  the  following  heads : 


I. 

Legislative 

10. 

Labor 

2. 

Judicial 

II. 

Education 

3- 

Executive 

12. 

Public  health 

4' 

Legal  service 

13- 

Institutions 

5- 

Finance 

14. 

Social  service 

6. 

Trade  and  corporations 

15- 

Civil  service 

7- 

Public  works 

16. 

State  defense 

8. 
9. 

Agriculture 
Natural  resources 

17- 

Examining  and  licensing 

This  division  was  made  to  facilitate  the  study  of  existing  agencies 
in  the  state  government  of  California.  The  office,  board  or  commission 
classified  under  any  of  these  divisions  was  studied  and  a  condensed  state- 


582  REPORT   OF  JOINT  LEGISLATIVE   COMMITTEE 

merit  .made  of  the  terms  and  salary  of  the  principal  officer  or  officers 
and  the  functions  of  the  department  or  office.  Following  this  is  a  tab- 
ulated citation  of  the  acts  "controlling  all  departments,  boards  and  com- 
mission." 

The  commission,  after  its  brief  and  comprehensive  investigation, 
finds  occasion  to  say  some  good  things  about  state  administration  in 
California.  This  statement  is  characteristic  of  western  optimism  and 
the  pride  and  faith  of  the  Pacific  states  in  their  institutions.  It  is  as 
follows : 

"California's  Governmental  Advancement 

"After  a  comprehensive  survey  of  the  present  agencies  of  the 
state  government  the  committee  finds  that  they  are  rendering  to  the 
people  of  the  state  loyal  and  effective  service.  These  various 
agencies  have  been  created  in  response  to  a  public  demand  and  the 
legislature  of  the  state  has  responded  to  that  demand,  and,  in  the 
main,  has  exercised  sound  and  careful  judgment.  Too  much  praise 
can  not  be  given  to  the  legislatures  of  California  which  have  convened 
since  1910,  for  their  patriotic  and  constructive  achievements.  Under 
the  leadership  of  governors  with  social  vision  and  determination, 
the  wishes  of  the  people  have  been  crystallized  into  legislation  which 
has  resulted  in  removing  social  unrest  and  in  strengthening  faith 
in  popular  government.  The  committee  believes  that  the  accom- 
plishments since  1910  should  inspire  the  people  of  the  state  with  a 
feeling  of  pride  for  what  has  been  done  by  the  various  state  agencies. 
Not  only  has  California  been  a  leader  in  humanitarian  legislation, 
but  it  is  among  the  most  advanced  states  in  methods  of  financial 
control  and  business  management. 

"Obviously  many  of  the  policies,  and  the  agencies  from  time 
to  time  created  to  carry  them  into  effect,  were  experimental  in  their 
nature  and  it  was  to  be  expected  that  the  integration  of  those  agen- 
cies and  their  proper  functioning,  one  with  another,  could  not  be 
worked  out  carefully  in  advance.  Duplication  and  overlapping  were 
inevitable.  It  should  be  noted,  however,  that  no  one  appeared  at 
any  of  the  committee's  hearings  to  challenge  either  their  policies 
that  have  been  adopted  or  the  integrity  of  those  charged  with  carry- 
ing them  into  effect.  The  aim  of  the  committee's  recommendations 
is  to  make  more  efficient,  effective  and  economical  the  agencies  of 
administration  in  operation,  without  lessening  the  services  they  are 
rendering  to  the  people  of  this  state." 

Governor's  cabinet  recommended. 
The  creation  of  a  governor's  cabinet  was  recommended  by  the.  com- 
mittee to  be  composed  of  the  following  officers: 

1 .  Director  of  receipts  and  supplies. 

2.  Director  of  accounts  and  expenditures. 

3.  Director  of  trade  and  corporations. 

4.  Director  of  public  works. 

5.  Director  of  agriculture. 

6.  Director  of  natural  resources. 

7.  Director  of  labor. 


ON  ADMINISTRATIVE  REORGANIZATION  583 

8.  Director  of  institutions. 

9.  Chairman  of  the  board  of  education. 

10.  Chairman  of  the  board  of  health. 

11.  Chairman  of  the  board  of  social  service. 

Under  these  officers  it  was  proposed  to  organize  the  administrative 
£;tate  agencies  in  departments  corresponding  tO'  the  official  title  of 
directors;  that  is,  department  of  receipts  and  supplies,  department  of  ac- 
counts and  expenditures,  etc. 

As  already  stated,  the  committee  made  its  report  to  the  governor 
on  March  12,  1919.  Governor  Stephens  under  date  of  March  19,  1919. 
transmitted  the  report  of  the  committee  v^ith  a  special  message  relating 
thereto  to  the  general  assembly  of  California.  The  governor's  comment 
on  the  report  is,  in  part,  as  follows : 

"In  the  letter  of  appointment  addressed  to  every  member  of  the 
committee  I  referred  to  the  desirability  of  formulating  a  definite 
plan  for  improving  the  administration  of  the  state's  aflfairs,  and 
for  introducing  such  economies  as  might  be  possible  without 
prejudice  to  the  public  welfare  or  impairment  of  present  efficiency. 
Attention  was  called  to  the  need  of  ascertaining  just  where  over- 
lapping existed,  if  at  all,  and  the  possible  saving  to  be  effected  by 
its  elimination.  It  was  emphasized,  of  course,  that  such  saving 
must  be  made  without  interfering  in  any  degree  with  the  service  of 
those  great  commissions  erected  within  our  state  during  the  last 
decade,  and  which  have  meant  so  much  to  the  health,  the  safety, 
and  the  general  well-being  of  our  people. 

"The  report  is  a  very  valuable  public  document  and  deserving 
of  the  most  careful  thought.  It  is  significant,  however,  that  it  is 
devoid  of  criticism  so  far  as  extravagance,  inefficiency  or  overlap- 
ping are  concerned.  Indeed,  generous  tribute  is  paid  by  the  com- 
mittee to  the  honesty,  zeal  and  public  spirit  with  which  the  commis- 
sions and  other  departmental  agencies  are  operating.  This  report 
will  be  of  great  value  in  the  assurance  it  must  give  to  our  people 
of  the  fidelity  to  trust  of  our  public  servants. 

"The  committee  has  apparently  felt  constrained  to  propose  a 
new  plan  which  is  a  substantial  departure  from  those  methods  and 
agencies  now  existing  and  well  known  to  the  people  of  the  state.  A 
somewhat  radical  change  is  purposed  in  our  methods  of  administra- 
tion when  it  is  proposed  to  substitute  in  place  of  most  of  the  existing 
commissions  a  system  of  departments  and  bureaus,  with  directors, 
chief  of  divisions  and  minor  heads,  all  holding  office  directly  or  in- 
directly at  the  pleasure  of  the  governor. 

"To  change  the  laws  of  California  to  provide  for  a  complete 
reorganization  of  the  structure  of  the  state  government  is  a  task 
so  huge  that  there  is  little  hope  that  it  can  be  accomplished  in  the 
remaining  days  of  this  session  of  the  legislature.  Indeed,  the  work 
is  so  important,  and  the  results  which  may  follow  such  changes  are 
so  vast,  that  the  members  of  the  legislature  and  the  people  of  the 
state  should  have  ample  time  for  careful  consideration  and  study. 
So  far  as  the  people  have  given  this  subject  thought,  I  am  con- 
vinced that  they  are  not  interested  so  much  in  the  structure  of  gov- 


584  REPORT   OF   JOINT  LECISLATINE   COMMITTEE 

ernment  as  they  are  in  an  immediate  reduction  of  the  cost  of  gov- 
ernment while  maintaining  the  same  high  standards  of  efficiency. 
The  plan  of  government  is  important  mainly  as  it  reflects  itself  in 
economy  and  in  efficiency. 

"The  first  thing  to  be  noted  in  the  report  is  the  annual  amount 
the  committee  believes  it  is  possible  to  save.  This  amount  is  $275,- 
000  a  year,  and  consists  of  two  classes  of  savings.  One  class,  con- 
sisting of  $175,000,  I  am  informed  through  a  member  of  the  com- 
mittee, may  be  saved  from  two  sources  —  first,  by  a  system  of  cash 
discounts  on  purchases,  and  second,  by  taking  the  transportation  of 
the  insane  from  the  sheriffs  of  the  counties  and  placing  the  matter 
in  the  hands  of  trained  attendants  from  the  hospitals. 

"It  occurs  to  me  that  these  two  items  of  savings,  while  excel- 
lent in  themselves,  have  no  essential  part  in  a  particular  plan  of 
governmental  reconstruction,  since  both,  if  feasible,  can  be  done 
equally  well  under  our  present  plan  of  government. 

"The  cash  discount  system,  which  the  committee  estimates 
will  save  $150,000  a  year,  can  be  put  into  operation  by  making  our 
purchases  out  of  a  revolving  fund,  if  it  is  found  that  sufficient 
checks  and  audits  can  be  had  under  such  plan  adequately  to  safe- 
guard the  public  moneys.  A  bill  covering  this  matter  will  be  pre- 
sented to  you  for  your  consideration. 

"If  the  foregoing  two  items  of  saving  can  be  successfully 
accomplished,  the  committee's  estimate  will  leave  but  $100,000  a 
year  as  a  saving  that  might  be  effected  by  a  complete  reorganization 
of  our  present  governmental  agencies. 

"I  am  firmly  of  the  opinion  that  the  legislature  at  this  session 
should  go  as  far  as  possible  in  the  enactment  of  measures  tending 
towards  consolidation  of  certain  commissions,  where  it  is  certain 
that  such  consolidation  will  not  result  in  lessened  efficiency  and 
will  with  equal  certainty  result  in  the  lessening  of  cost.  To  this 
end  there  will  be  submitted  several  bills,  all  drafted  with  a  design 
to  bring  about  economy,  and  it  is  my  earnest  hope  that  you  will  give 
these  rneasures  your  approval.  Among  them  will  be  bills  for  elimi- 
nating some  attorneyships  now  carried  by  various  boards  and  com- 
missions, and  providing  for  consolidating  such  work  in  the  office  of 
the  attorney  general.  Bills  for  consolidating  certain  commissions 
will  also  be  prepared. 

"One  of  the  criticisms  directed  against  the  suggested  reorgan- 
ization of  the  administrative  structure  of  government  into  a  num- 
ber of  departments,  all  under  the  control  of  appointees  to  hold  ofiice 
at  the  pleasure  of  the  governor,  is  that  such  arrangement  would 
place  tremendous  power  in  the  hands  of  the  chief  executive.  While 
it  may  be  wise  to  centralize  power  if  at  the  same  time  responsibility 
is  also  centralized,  yet  the  question  is  of  such  serious  concern  that 
it  seems  ill-advised  to  act  precipitately.  As  chief  executive  I  am  un- 
willing to  advocate  greater  power  for  the  governor  without  more 
extended  study,  and  without  opportunity  for  the  people  to  give  some 
clearer  expression  of  their  views  than  can  be  had  in  the  time  inter- 
vening: between  this  and  the  close  of  the  session. 

"I  shall  insist  upon  the  strictest  economy  in  the  administration 
of  the  state's  affairs,  but  I  would  not  lessen  the  efficiency  of  our 
public  service,  nor  the  amount  of  humane  and  upbuilding  work  that  is 
being  done." 


ON   ADMIXISTKATINK  REORGANIZATION  5'^5 

On  March  20,  1919,  the  assembly  of  CaHfornia  considered  the  mes- 
sage from  the  governor  and  the  accompanying  report  and  referred  the 
same  to  the  committee  on  governmental  efficiency  and  economy. 

To  the  present  time  (January  i,  1920)  no  further  action  has  been 
taken. 

In  comparing  the  recommendations  of  the  California  commission 
with  the  civil  administrative  code  of  IHinois  this  difference  is  apparent: 
In  each  of  the  departments  recommended  by  the  committee  of  California 
the  director  of  the  department  is  made  the  administrative  head  of  one 
of  its  divisions.  In  Illinois  the  director  under  the  code  seems  to  have 
general  supervision  of  all  the  divisions  of  his  department  without  directly 
administering  any  one  of  them. 

COLORADO 

At  the  legislative  session  in  191 5  the  general  assembly  of  Colorado 
enacted  a  law  providing  for  a  survey  committee  of  state  afifairs  of  Col- 
orado. This  committee  consisted  of  seven  members,  two  appointed  by  the 
senate,  two  by  the  house  of  representatives  and  three  appointed  by  the 
governor.  The  committee  was  authorized  to  investigate  all  departments 
and  agencies  of  the  state  administration. 

The  attorney  general  of  the  state  questioned  the  constitutionality  of 
the  act  creating  the  committee.  This  led  to  litigation  and  the  case  went 
to  the  supreme  court.  On  June  5,  1916,  the  act  was  declared  to  be  con- 
stitutional. 

A  number  of  special  investigations  were  made  and  reports  were  sub- 
mitted to  the  legislature  in  February,  1917..  These  reports,  fifteen  in 
number,  are  named  by  title  under  "State  Publications"  listed  in  the 
bibliography   submitted   to   your   committee. 

The  committee  had,  in  addition  to  its  secretary,  other  employes  and 
a  stafif  of  three  specialists  who  conducted  investigations.  In  addition  to 
these,  voluntary  aid  was  given  by  the  U.  S.  public  health  service,  the 
U.  S.  bureau  of  education,  Columbia  university  and  specialists  in  the 
state  of  Colorado  who  contributed  their  service  without  pay  from  the 
appropriation  for  the  use  of  the  committee. 

The  legislature  of  1917  did  not  provide  for  the  continuation  of  the 
committee  although  the  governor,  in  his  annual  message,  strongly  urged 
that  it  do  so.  The  governor  in  1919,  in  his  message  to  the  legislature, 
urged  the  consolidation  of  state  governmental  agencies  in  the  interest  of 
efficiency  and  economy. 

While  important  legislation  has  not  followed  the  sun-ey  of  Colorado, 
the  published  reports  indicate  thorough  work  on  the  part  of  the  com- 
mittee and  the  investigators  and  constitute  a  valuable  contribution  to  the 
literature  of  state  administrative  reorganization. 


586  REPORT   OF   JOINT   LF.GISLATIVE   COMMITTEE 


CONNECTICUT 

By  act  of  February  8,  1915,  the  legislature  of  Connecticut  created 
a  commission  on  the  consolidating  of  state  commissions  of  Connecticut. 
This  commission  consisted  of  nine  members  appointed  by  the  governor, 
a  majority  of  whom  were  required  to  be  members  of  the  general  assem- 
bly or  of  existing  state  or  county  commissions.  This  commission  was  re- 
quired to  report  before  April  191 5  upon  the  reorganization  and  con- 
solidation of  various  state  and  county  boards  with  a  view  to  greater 
economy  and  efficiency :  to  revise  the  public  health  laws  that  waste  and 
duplication  of  authority  might  be  prevented. 

The  commission  reported  within  the  time  specified.  Its  investigation 
covered  the  brief  period  prior  to  April  i,  191 5.  Seventeen  days  were 
given  to  hearings  on  the  work  of  32  boards  and  commissions.  Extended 
recommendations  for  administrative  reorganization  were  made  and  the 
report  includes  drafts  of  acts  proposed  to  carry  out  recommendations. 
No  important  resulting  legislation  has  been  reported. 


DELAWARE 

In  Delaware  the  movement  for  reorganization  of  the  state  govern- 
ment originated  with  the  comicil  of  defense  of  that  state.  The  move- 
ment here  may  therefore  be  said  to  be  the  direct  result  of  the  war. 
In  the  summer  of  1918,  before  signs  of  peace  were  apparent,  the  defense 
council  of  Delaware  called  to  its  assistance  the  New  York  Bureau  of 
Municipal  Research  and  commenced  an  investigation  of  the  government 
of  the  city  of  Wilmington  which  gradually  extended  to  the  counties  of 
Delaware  and  the  state  government  as  well.  Chester  C.  Maxey,  of  the 
Bureau,  described  conditions  in  Delaware  as  a  "chaotic  jumble." 

The  state  government  was  found  to  possess  117  administrative 
agencies,  83  of  which  were  appointed  by  the  governor.  The  council  of 
defense,  basing  its  action  upon  investigations  by  the  New  York  Bureau 
of  Municipal  Research,  reported  in  favor  of  a  complete  reorganization 
of  the  state  government,  under  nine  departments.  Acting  upon  these 
recommendations  Governor  Townsend  requested  the  creation  of  a  recon- 
struction commission  to  investigate  the  report  and  make  recommendations 
to  the  legislature  for  action. 

The  general  assembly  of  Delaware  adopted  a  resolution  which  was 
approved  April  2,  1919,  "Providing  for  a  commission  to  make  a  survey 
of  state  government  and  state  offices  and  county  government  and  county 
offices  and  report  to  the  next  general  assembly." 

A  committee  was  appointed  pursuant  to  this  resolution  and  is  now 
completing  its  survey  of  the  state  government  and  preparing  a  bill 
embracing  its  recommendations  to  submit  to  the  next  general  assembly. 


ON  ADMINISTRATIVE  REORGANIZATION  5^7 

IDAHO 
In  his  message  to  the  legislature  in  1919,  Governor  W.  D.  Davis 
of   Idaho  made  the   following  recommendations   relative  to   reorganiza- 
tion of  the  executive  departments  of  that  state : 

"The  executive  and  administrative  departments  of  the  state 
should  be  divided  into  a  small  number  of  departments,  the  heads 
of  which,  so  far  as  the  constitution  permits,  shall  be  directly  re- 
sponsible to  the  governor.  The  functions  of  every  officer,  bureau, 
board,  or  commission  in  the  state  should  be  assigned  to  one  of  these 
departments.  The  departments  should  be  subdivided  where  neces- 
sary into  bureaus,  the  heads  of  which  and  the  subordinates  under 
them  being  selected  with  view  to  their  expert  fitness  and  qualifica- 
tions for  their  respective  positions. 

"I  further  propose  that  the  heads  of  the  several  departments, 
including  the  constitutional  elective  officers,  shall  constitute  a  gov- 
ernor's cabinet  or  council,  thereby  furnishing  a  vehicle  through 
which  all  the  departments  of  the  state  government  can  be  co-ordi- 
nated and  correlated  in  their  functions;" 

The  governor's  recommendation  was  heeded  and  the  bill  to  make 
it  effective,  known  as  the  administration  consolidation  bill,  was  intro- 
duced in  the  senate  of  Idaho  and  is  now  a  law.  It  is  not  to  be  under- 
stood, however,  that  the'  movement  for  the  reorganization  of  the  state 
government  had  its  inception  in  the  message  of  Governor  Davis.  A 
writer  thoroughly  acquainted  with  state  affairs  in  Idaho  thus  describes 
antecedent  conditions  that  opened  up  the  way  for  the  enactment  of  the 
law.     In  part  he  says : 

"The  measure  is  the  outcome  of  a  number  of  years  of  intense 
dissatisfaction  arising  from  the  methods  employed  by  state  admin- 
istrators. Criminal  proceedings,  wide-spread  criticisms  of  the  state 
land  board  —  one  of  the  most  important  boards  in  the  state  —  lack 
of  uniformity  of  accounting,  absence  of  a  budget,  and  equally 
unbusiness-like  methods  have  characterized  the  state  administration 
from  some  time  back.  In  fact  there  have  been  many  rumors  that 
the  financial  condition  of  the  state  is  in  a  far  more  serious  condition 
than  people  generally  were  aware  of.  Expert  accountants  have  been 
on  the  state  books  for  over  two  years  and  those  conversant  with  the 
situation  contend  that  the  whole  matter  of  state  finance  is  in  a 
hopeless  muddle." 

The  law  was  approved  by  the  governor  February  19,  19 19  and  it 
became  effective  from  and  after  March  31,  1919.  It  reorganized  the 
government  of  the  state  under  the  following  departments :  Agriculture ; 
commerce  and  industry;  finance;  immigration,  labor  and  statistics;  law 
enforcement;  public  investments;  public  welfare;  public  works;  reclama- 
tion. 

Each  dq:artment  has  an  administrative  officer  at  its  head  who  is 


588  KEl'ORT   OF   JOINT   LliClSLATINE    COMMITTKE 

called  a  commissioner.    The  legal  designations  of  these  officers  are  there- 
fore as  follows : 

Commissioner   of   agriculture 

Commissioner  of  commerce  and  industry 

Commissioner  of  finance 

Commissioner  of  immigration,  labor  and  statistics 

Commissioner  of  law  enforcement 

Commissioner  of  public  investments 

Commissioner  of  public  welfare. 

Commissioner  of  public  works 

Commissioner  of  reclamation 

In  addition  to  these  executive  heads  the  following  officers  are 
designated  in  the  law  under  the  different  departments : 

Department  of  Agriculture 
Director  of  markets 

Director  of  animal  industry  •  ■ 

Director  of  plant  industry 
Director  of  farrs 

Department  of  Commerce  and  Industry 

Assistant  commissioner  of  commerce  and  industry 
Director  of  banking 

Department  of  Insurance 
Director  of  insurance 
Manager  of  state  industrial  insurance 

Department  of  Law  Enforcement 

Fish  and  game  warden 
Department  of  Public  Welfare 

Public   health   adviser 
Department  of  Public  Works 

Director  of  highways 
Department  of  Reclamation 

Director  of  water  resources 

In  addition  to  the  foregoing  administrative  officers  there  is  created 
under  the  act  a  board  of  agricultural  advisors  "composed  of  nine  per- 
sons, the  members  of  which  shall  be  officers." 

Section  1 1  of  the  act,  relative  to  appointment,  is  very  explicit  in  the 
authority  that  it  confers  upon  the  governor.     It  reads  as  follows: 

"All  officers  created  by  this  act  shall  be  appointed  by  the  gov- 
ernor, and,  except  those  who  under  the  constitution  are  appointed 
for  specific  terms,  may  be  removed  at  his  discretion." 

Another  section  of  the  law  authorized  the  appointment  of  any  of  the 
elective  officers  of  the  state  to  the  head  of  any  one  of  the  nine  depart- 
ments, providing  he  is  otherwise  qualified,  but  prohibits  the  payment  to 


ON  ADMIMSTKATIVE  REORGANIZATION-  589 

him  of  any  salary  other  than  that  which  he  receives  as  an  elective  state 
officer. 

A  noteworthy  feature  of  the  Idaho  law  is  that  which  provides 
special  qualifications  for  the  incumbents  of  certain  offices  that  it  creates. 
In  this  respect  it  follows  the  law  enacted  in  Massachusetts  in  1918,  re- 
ference to  which  is  made  in  the  study  of  that  state.  Because  of  the 
importance  of  this  feature  the  qualifications  required  are  here  given  in 
full : 

"In  the  Department  of  Agriculture 
"The  board  of  agricultural  advisors  shall  be  composed  of  repre- 
sentative citizens  engaged  in  various  agricultural  pursuits  through- 
out the  state,  not  excluding  representatives  of  the  agricultural  press 
and  of  the  state  agricultural  experiment  station. 

"In  the  Department  of  Commerce  and  Industry 
"Neither  the  commissioner  of  commerce  and  industry  nor  any 
director  in  his  department  shall  be  the  owner  of  or  financially  inter- 
ested either  directly  or  indirectly  in  any  banking  or  insurance  cor- 
poration subject  to  the  supervision  of  the  department. 

"The  commissioner  of  commerce  and  industry  shall  have  had 
at  least  five  years'  practical  experience  in  the  banking  business,  or 
shall  have  served  for  a  like  period  in  the  banking  department  of 
this  or  some  other  state. 

"The  director  of  insurance  shall  have  had  at  least  five  years' 
practical  experience  in  the  insurance  business. 

"In  the  Department  of  Law  Enforcement 
"Neither  the  commissioner,  nor  any  other  executive  or  ad- 
ministrative officer  in  the  department  of  law  enforcement,  shall 
hold  a  license  or  certificate  to  exercise  or  practice,  any  of  the  pro- 
fessions, trades  or  occupations  regulated  or  licensed  by  said  depart- 
ment. 

"In  the  Department  of  Public  Investments 

"The  commissioner  of  public  investments  shall  have  had  at 
least  five  years'  experience  in  the  banking  or  investment  business. 

"In  the  Department  of  Public  JV  el  fare. 
"The  public   health   adviser  shall  be   a   person   experienced   in 
the  practice  of  public  health  and  sanitation  and  authorized  under 
the  laws  of  this  state  to  practice  medicine  and  surgery. 

"In  the  Department  of  Public  Works 
"The  director  of  highways  shall  be  a  civil  engineer  of  not  less 
than  five  years'  experience  in  road  building. 

"In  the  Department  of  Reclamation 
"The  director  of  water  resources  shall  be  an  hydraulic  engineer 
with  not  less  than  five  years'  experience  in  the  practice  of  irrigation 
engineering." 


590  KEl'ORT   OF   JOINT   LKGiSLATlNE   COMMITTEE 

Why  qualifications  are  not  required  in  this  act  for  all  officers  named 
therein  is  not  clear.  The  fact  that  they  are  required  in  a  number  of 
departments,  however,  is  significant  of  a  tendency  to  thus  protect  the 
public  service.  It  is  certainly  illogical  to  fix  standards  of  fitness  for  those 
in  subordinate  positions  while  assuming  that  any  person  who  may  be 
appointed  is  qualified  to  serve  at  the  head  of  a  department. 

The  number  of  offices  created  and  specifically  named  in  the  Idaho 
law  is  not  large.  There  is  a  blanket  provision,  however,  in  section  i6 
of  the  act  which  makes  it  possible  to  extend  the  list  of  employes.  It 
reads  as  follows : 

"Each  department  is  empowered  to  employ  necessary  employees, 
and.  if  the  rate  of  compensation  is  not  otherwise  fixed  by  law,  to 
fix  their  compensation." 

Of  course  employment  can  not  be  provided  where  appropriations 
have  fiot  been  made  for  that  purpose.  The  number  of  employes  in  the 
state  under  the  new  law  is  therefore  indefinite  and  dependent  upon  the 
legislature  and  the  heads  of  the  different  departments.  Until  the  law 
is  in  operation  and  the  reorganization  provided  by  it  has  been  effected 
and  tested  in  practice,  it  will  be  impossible  to  make  a  comparison  be- 
tween expenditure  for  salaries  under  the  old  system  and  the  new.  Many 
offices  and  positions  are  abolished,  but  to  what  extent  they  will  virtually 
be  reestablished  under  the  new  code  is  not  known. 

It  will  be  noticed  that  there  is  no  provision  for  a  department  of 
education  in  the  Idaho  code.  The  educational  institutions  of  that  state 
have  not  been  brought  within  its  purview,  doubtless  because  they  are 
satisfactorily  administered  under  laws  previously  enacted. 


ILLINOIS 

In  April  1913  the  general  assembly  of  Illinois  passed  a  resolution 
authorizing  the  appointment  of  a  committee  of  four  senators  and  four 
representatives  to  investigate  the  departments  of  the  state  government, 
including  all  bureaus  and  commissions  which  had  been  created  by  the 
general  assembly.  The  investigation  was  to  be  made  with  a  view  of 
.securing  a  more  perfect  system  of  accounting,  combining  and  centralizing 
the  duties  of  the  various  departments,  abolishing  such  as  were  useless 
and  securing  for  the  state  of  Illinois  such  reorganization  as  would  pro- 
mote greater  efficiency  and  greater  economy  in  her  various  branches  of 
government. 

The  committee  was  given  full  authority  to  employ  expert  ac- 
countants, attorneys,  stenographers  and  other  assistants  necessary.  An 
appropriation  of  $40,000  was  made  to  carry  on  the  work  of  the  com- 
mittee. 


-ON  ADMINISTRATIVE  REORGANIZATION  59^ 

The  resolution  did  not  give  the  committee  a  specific  name  but  the 
reports  of  the  committee  bear  the  designation,  "efficiency  and  economy 
committee". 

On  July  i8,  1914  the  committee  made  a  preliminary  report  to  the 
general  assembly  embracing  the  following  recommendations : 

'"More  or  less  natural  grouping  of  the  existing  100  departments 
into  the  following  subdivisions: 

"Finance   administration. 

Education. 

Charitable  and  correctional  institutions, 

Public  works  and  conservation. 

Agricultural  agencies. 

Labor  and  mining  agencies. 

Public  health  and  safety. 

Control  of  corporations. 

Law  officers. 

State  militia 

Miscellaneous. 

"Recommends  preparation  of  budget  by  governor  and  heads  of 
departments. 

"Such  reorganization  as  is  here  recommended  should  bring  about 
greater  harmony  between  the  executive  and  legislative  branches  of 
the  state  government.  The  governor  will  have  authority  over  the 
whole  executive  organization  and  means  for  enforcing  his  authority 
and  may  properly  be  held  responsible  for  its  conduct." 

On  December  i,  1914,  the  committee  made  a  report,  covering  80 
pages,  which  includes  a  graphic  representation  of  the  state  executive 
organization  in  Illinois  and  the  one  proposed  to  supercede  it.  It  details 
advantages  to  be  gained  from  the  proposed  reorganization  and  in  con- 
clusion gives  the  following  summary  statement  of  "results  to  be  ex- 
pected :" 

"Correlation  and  Supervision 

"The  proposed  organization  of  related  services  into  the  same  depart- 
ment will  bring  about  greater  economy  and  efficiency  by  eliminating 
unnecessary  and  duplicate  positions,  and  still  more  by  bringing  about 
greater  harmonv  and  co-operation  in  the  work  of  such  offices.  It  should 
also  be  easier  to  avoid  over-lapping  of  functions  and  to  promote  co- 
operation between  the  several  main  departments.  The  detailed  plans 
will  also  attempt  to  equalize  salaries  and  to  provide  for  a  more  definite 
and  uniform  system  of  reports.  Under  the  proposed  organization-  there 
should  also  be 'little  or  no  occasion  for  the  creation  of  additional  depart- 
ments in  the  future  as  new  services  when  needed  can  be  attached  to  some 
of  the  departments  already  established. 

"Efficiency  and  economy  should  also  be  secured  under  the  proposed 
plan  of  reorganization  by  establishing  a  more  definite  system  of  super- 
vision over  the  several  branches  of  state  administration.  The  head  of 
each  department  will  determine  many  matters  hitherto  brought  to  the 
attention  of  the  governor  or  decided  by  minor  officials  without  relation 
to  other  related  offices ;  while  the  more  important  questions  will  be  pre- 


59-  RKI'ORT   OF   JOINT   LE(^.ISLATI\E   COMMITTEE 

sented  to  the  governor  with  adequate  information  and  in  proper  form  for 
prompt  action.  By  this  means  the  governor  will  be  enabled  to  give  more 
attention  and  consideration  to  the  larger  problems  both  of  administration 
and  legislation. 

"With  regard  to  the  constitutional  elective  officers,  these  cannot  be 
brought  under  the  complete  control  of  the  governor  without  changes 
in  the  state  constitution.  Under  the  proposed  plans,  however,  these 
officials  will  be  given  authority  and  can  be  held  responsible  for  all  matters 
properly  belonging  to  their  offices ;  while  functions  now  placed  on  these 
officers  which  are  not  closely  related  to  their  primary  duties  will  be 
transferred  to  offices  under  the  supervision  and  control  of  the  governor. 

Assistance  in  Legislation 

"With  a  well  organized  executive  system,  recommendations  from 
the  several  departments  should  also  be  of  much  assistance  to  the  general 
assembly  in  matters  of  legislation.  Such  recommendations  should  cover 
a  large  part  of  the  important  legislation  needed ;  and  coming  from  officers 
responsible  for  its  execution  will  be  more  carefully  prepared  both  as  to 
substance  and  form  and  with  reference  to  previous  legislation,  than 
proposals  from  other  sources.  By  this  means  there  should  be  brought 
about  greater  harmony  between  the  executive  and  legislative  branches  of 
t-he  state  government. 

Responsible  Govcrmnent 

"Moreover,  under  the  proposed  reorganization  the  general  public 
will  be  able  to  learn  more  readily  from  the  reports  of  the  important 
departments  of  the  actual  conduct  of  public  affairs  in  any  of  the  main 
fields  of  state  government.  And,  as  the  governor  will  have  authority 
over  the  whole  executive  organization,  and  means  for  enforcing  this 
authority,  so  far  as  possible  under  the  present  constitution,  he  may 
properly  be  held  responsible  by  public  opinion  for  its  operation. 

Budget  and  Accounts 

"The  proposed  reorganization  will  also  aid  in  the  preparation  of  a 
proper  budget  of  estimates  as  a  basis  for  appropriations.  Each  depart- 
ment will  be  able  to  formulate  a  careful  estimate  of  needed  appropri- 
ations, considering  the  relative  demands  of  its  several  bureaus,  and  serv- 
ices;  and  these  departmental  estimates  will  be  compiled  and  analyzed  by 
the  state  comptrolller  for  submission  to  the  governor,  who  wilT  recom- 
mend the  aggregate  budget  of  items  approved  by  him  to  the  general 
assembly.  This  will  place  on  the  governor  the  responsibility  for  the  total 
amount  requested ;  and  the  general  assembly  will  hesitate  to  increase  the 
.appropriations  beyond  the  amounts  recommended  by  the  governor. 

"A  comprehensive  pnd  modern  system  of  accounts  (such  as  is  sub- 
■nittedin  outline,  and  which  has  been  worked  out  in  detail  for  the  peni- 
tentiaries and  reformatory)  will  also  aid  in  controlling  and  fixing  re- 
sponsibility for  expeiiditures  and  \n  preparing  close  estimates  for  the 
budget. 

Economy  Expected 

"To  measure  accurately  in  statistical  and  mathematic  terms  the 
?xpected  improvements,  is  more  difficult  than  to  point  out  the  general 
results  likely  to  be  gained.     But   some  estimates  may  be   made  of  the 


ON  ADMINISTRATIVE  REORGANIZATION  593 

direct  financial  advantages.  The  general  plans  of  consolidation  and  re- 
organization will  directly  reduce  expenditures  for  salaries  and  expenses 
of  officials,  and  for  office  expenses  by  about  $100,000  a  year.  The 
saving  proposed  in  the  extension  of  taxes  and  the  interest  on  tax  col- 
lections will  amount  to  $500,000  a  year.  The  centralization  of  inheritance 
tax  administration  should  reduce  the  cost  of  collection  by  one-half,  or 
at  least  $ioo,coo  a  year.  The  management  of  local  school  funds  by 
county  treasurers  instead  of  by  school  township  treasurers,  should  save 
one-half  of  the  present  cost  of  administration  or  another  $100,000  a  year, 
if  the  consolidation  of  prison  management  results  in  placing  the  cost  of 
maintenance  on  the  same  per  capita  basis  as  in  the  charitable  institutions, 
there  will  be  a  further  saving  of  $200,000  a  year.  The  more  centralized 
organization  proposed  for  the  rental  and  supervision  of  state  offices  and 
for  printing  and  the  purchase  of  supplies  should  also  bring  about  a  re- 
duction in  expenses  of  not  less  than  $100,000  a  year. 

"Combining  these  items  it  may  be  roughly  estimated  that  the  direct 
financial  saving,  on  the  basis  of  existing  services,  will  be  not  less  than 
$1,000,000  a  year,  of  which  $600,000  will  be  direct  gain  to  the  state 
treasury.  An  effective  budget  system  should  make  possible  still  larger 
reduction  of  expenditures.  But  the  most  important  gain  will,  after  all, 
be  in  the  increased  efficiency  of  public  administration,  which  will  be 
equivalent  to  a  large  saving  to  the  state,  even  if  it  cannot  well  be  measured 
in  dollars  and  cents.  A  more  efficient  revenue  administration,  for 
example,  will  produce  large  revenue  with  a  more  equitable  distribution 
of  the  burdens  of  taxation. 

"At  the  same  time,  it  should  be  borne  in  mind  that  with  the  increase 
in  population  and  in  the  demands  for  public  activities  ....  as  for 
education,  good  roads  and  better  treatment  of  the  wards  of  the  state 
....  the  total  appropriations  and  expenditures  of  the  state  are  not 
likely  to  be  reduced.  Indeed  a  department  which  is  performing  efficiently 
a  useful  service  may  receive  larger  appropriations  than  if  the  work  were 
done  poorly. 

"But  the  increase  in  state  expenditures  which  must  be  expected 
makes  it  all  the  more  important  to  provide  a  system  of  administration 
which  will  make  possible  and  probable  a  more  efficient  and  economical 
administration  of  the  public  funds.  It  is  with  this  purpose  that  the  in- 
vestigations of. the  efficiency  and  economy  committee  have  been  under- 
taken, and  its  plans  for  reorganization  have  been  formulated. 

"The  committee,  is  unanimously  of  the  opinion  that  the  reorgan- 
ization of  the  executive  departments  upon  the  general  lines  proposed 
will  result  both  in  much  greater  efficiency,  and  in  greater  econ- 
omy in  the  conduct  of  state  administration.  Likewise,  it  will  aid 
the  governor  and  the  general  assembly  to  perform  their  duties  more 
effectively  in  the  public  interest ;  and  it  will  give  the  general  public  more 
definite  and  adequate  knowledge  of  the  purposes  and  results  of  the 
administrative  service  of  the  state.  The  several  members  of  the  com- 
mittee also  concur  in  the  specific  recommendations,  except  in  so  fax  as 
dissent  is  indicated  in  the  supplemental  sJtatements  attsdae/i  thereto. 

NEED    FOR    FURTHER    INVESTIGATION 

"The  investigations  by  this  committee  and  the  reports  and  plans 
submitted  cover  in  a  comprehensive  way  the  field  of  the  state  executive 
organization  established  and  governed  by  the  acts  of  the  general  assembly. 


594  REPORT   OF   JOINT   LI-.CISLAT) VE    COMMlTTI-.E 

There  remain,  however,  other  fields  and  branches  of  state  and  local  gov- 
ernment in  Illinois  where  a  similar  investigation  would  develop  that  large 
economies  and  greater  efficiency  could  be  secured.  Siich  an  investigation 
will  be  of  value  to  future  sessions  of  the  general  assembly,  and  will  be 
of  particular  value,  in  view  of  the  proposals  now  being  urged  for  a  con- 
vention to  revise  the  state  constitution. 

"If  constitutional  or  important  statutory  changes  are  likely  to  be 
made  in  the  near  future,  there  should  be  careful  and  systematic  survey 
of  the  governmental  organization  and  of  other  provisions  of  the  present 
constitution,  and  their  practical  operation,  in  comparison  with  those  of 
other  states  and  countries.  This  should  include  an  examination  of  the 
state  executive  officers,  the  judicial  systems  and  the  general  assembly, 
and  of  the  relations  between  these  departments  of  state  government. 
There  should  also  be  a  careful  study  of  local  government,  as  established 
by  the  constitution  and  by  statute,  and  of  its  relation  to  the  central  gov- 
ernment of  the  state.  Still  further  there  should  be  included  an  examina- 
tion of  the  constitutional  provisions  relating  to  suffrage  and  elections, 
education,  finance  and  taxation,  corporations  and  public  utilities  and  the 
methods  of  amending  and  revising  the  state  constitution. 

"On  all  of  these  subjects,  there  should  be  available  a  comprehensive 
and  thorough  analysis  of  the  existing  constitutional  provisions  of  Illinois, 
and  a  detailed  report  on  how  these  provisions  actually  work.  There  is 
needed,  for  example,  a  scientific  study  of  the  use  of  the  governor's  veto 
power,  of  the  exercise  by  the  courts  of  the  power  to  declare  statutes 
unconstitutional,  and  of  the  present  systems  of  representation  in  the 
houses  of  the  general  assembly. 

"Along  with  this  investigation  of  the  present  governmental  system 
in  Illinois,  there  should  be  a  study  made  of  similar  and  different  methods 
in  other  states  and  so  far  as  practicable  those  of  foreign  countries.  These 
should  include  inquiries  and  reports  on  such  subjects  as  the  relations  of 
the  executive  to  the  legislature,  woman  suffrage,  the  initiative  and  ref- 
erendum, municipal  and  county  home  rule,  judicial  organization,  pro- 
portional representation,  and  methods  of  taxation. 

"Such  a  survey  is  essential  in  order  to  make  available  for  the  mem- 
bers of  the  general  assembly  and  the  constitutional  convention  the  data 
which  should  be  at  hand  for  statutory  and  constitutional  changes.  Some- 
thing of  the  kind  has  been  authorized  in  the  state  of  New  York  to  pre- 
pare for  the  constitutional  convention  to  be  held  in  that  state  in  1915. 
To  collect  the  information,  and  to  analyze  and  digest  the  data  thoroughly, 
the  investigation  should  be  commenced  as  soon  as  possible. 

"This  committee,  therefore,  recommends  that  the  forty-ninth  general 
assembly  provide  for  a  comprehensive  survey  of  government  in  Illinois, 
to  collect  and  digest  the  materials  bearing  on  the  problems  of  legislation 
and  proposed  changes  in  the  state  constitution." 

The  final  rejjort  of  the  efficiency  and  economy  committee  of  Illinois 
was  published  in  191 5.  It  opens  with  the  report  to  the  legislature  under 
date  of  December  i,  1914  and  concludes  with  appendices  made  up  of 
special  studies  of  those  selected  by  the  director  of  the  committee.  Pro- 
fessor John  A.  Fairlie,  to  make  investigations  of  various  subjects  re- 
lated to  state  administration.  Following  is  the  table  of  contents  of  these 
special  studies : 


ON  ADMINISTRATIVE  REORGANIZATION  595 

REVENUE   AND    FINANCE    ADMINISTRATION 

By  John  A.  Fairlie. 

THE  ACCOUNTS  OF   THE  STATE  OF   ILLINOIS 

By  George  E.  Frazer,  C.  P.  A. 

ACCOUNTING    ADMINISTRATION     FOR     CORRECTIONAL     INSTITUTIONS 

By  Spurgeon  Bell. 

CHARITABLE   AND    CORRECTIONAL   INSTITUTIONS 

By  James  W.  Garner. 

EDUCATIONAL   ADMINISTRATION 

By  John   M.   Mathev^s. 

LABOR    AND    MINING    AGENCIES 

By  W.  F.  Dodd. 

AGRICULTURAL    ADMINISTRATION 

By  James  W.  Garner. 

PUBLIC   HEALTH   ADMINISTRATION 

By  John  M.   Mathews. 

SUPERVISION    OF   CORPORATIONS 

By  Maurice  H.  Robinson. 

PUBLIC  WORKS,   PARKS  AND  BUILDINGS 

By  C.  O.  Gardner. 

MILITARY  ADMINISTRATION 

By  Quincy  Wright. 

CIVIL  SERVICE   LAWS 

By  A.  C.  Hanford 

THE  SECRETARY  OF  STATE  AND  LAW  OFFICES 
EFFICIENCY  AND  ECONOMY  COMMISSIONS   IN  OTHER  STATES 

By  A.  C.  Hanford. 

These  published  studies  are  a  series  of  monographs  of  great  value 
to  any  committee  having  under  consideration  a  reorganization  of  state 
government.  They  exhibit  the  chief  foundation  work  of  the  committee ; 
they  cover,  in  the  aggregate,  971  pages  and  embrace  a  carefully  pre- 
pared review  of  state  administration,  not  only  in  Illinois,  but  in  other 
states.  With  these  studies  before  them  the  members  of  the  Illinois  com- 
mittee had  a  general  view  of  various  methods  employed  in  the  solution 
of  state  administrative  problems.  The  value  of  this  is  so  apparent  that 
it  need  not  be  dwelt  upon.    Take,  for  instance,  the  question  of  educational 


596  REPORT   OI'    JOINT   IJ'.C.ISLATINI-:    COM  M  ITTKE 

administration.  This  is  a  problem  of  great  importance  in  every  state.  A 
committee  about  to  reorganize  its  state  educational  administrative 
agencies  would  be  interested  in  knowing  what  has  been  done  along 
similar  lines  in  other  states.  The  same  is  true  of  agricultural  adminis- 
tration, charitable  and  correctional  institutions  and  the  other  subjects 
exhaustively  presented  in  the  voluminous  appendix  to  this  report. 

Consolidation  of  state  governmental  agencies,  of  course,  implies  a 
centralizing  of  authority  and  responsibility.  This  is  emphasized  with 
great  frequency  in  the  Illinois  report.  It  seems  to  have  made  a  deep 
impression,  not  only  upon  the  committee  but  upon  the  general  assembly 
that  considered  the  findings  of  the  committee. 

A  bill  embracing  the  general  principles  of  the  committee's  report 
was  introduced  in  the  general  assembly  of  Ilhnois  in  191 7  and  became  a 
law ;  it  is  known  as  the  civil  administrative  code.  It  differs  in  some 
respects  from  the  recommendations  of  the  committee,  but  it  reorganizes 
the  state  government  under  nine  administrative  departments,  with  a 
director  at  the  head  of  each.  It  centralizes  authority  in  the  governor 
and  gives  him  very  generous  powers  of  appointment  and  removal  from 
office. 

The  committee  did  not  recommend  specific  salaries,  but  the  legisla- 
ture fixed  the  compensation  of  a  goodly  number  of  important  official  posts 
under  the  state  government.  Following  is  a  list  of  the  officers  and 
salaries  under  the  Illinois  code: 

Department  of  Finance 

Director  of  finance  $7,000 

Assistant  director  of  finance   4,200 

Administrative  auditor 4,800 

Superintendent  of   budget    3,6oo 

Superintendent  of  department  reports 3,600 

Department  of  Agriculture 

Director  of  agriculture $6,000 

Assistant   director  of   agriculture    3,600 

General  manager  of  state  fair 3,600 

Superintendent  of  foods  and  dairies 4,800 

Superintendent  of  animal  industry 3,600 

Superintendent  of  plant  industry 3.600 

Chief    veterinarian    4,200 

Chief  game  and  fish  warden  3.600 

Food  standard  officer 450 

Food  standard  officer  450 

Department  of  Labor 

Director  of  labor $5,ooo 

Assistant  director  of  labor 3,000 

Chief    factory    inspector 3.000 

Superintendent  of   free   employment   offices 3,000 

Chief  inspector  private  employment  agencies 3,000 


ON  ADMINISTRATIVE  REORGANIZATION  597 

Industrial  officer   5.00° 

Industrial  officer   5-000 

Industrial  officer   5.000 

Industrial  officer 5'OO0 

Industrial  officer   5.000 

Department  of  Mines  and  Mining 

Director  of  mines  and  mining  .  •  •  •  • $5.ooo 

Assistant  director' of  mines  and  mining 3.000 

Mine  officer   500 

Mine  officer  50O 

Mine  officer   500 

Mine  officer 500 

Miners'   examining   officer    i,8oo 

Miners'   examining   officer    i,8oo 

Miners'   examining   officer    l,8oo 

Miners'    examining   officer    •  i,oOO 

Department  of  Public  Works  and  Buildings 

Director  of  public  works  and  buildings $7,000 

Assistant  director  of  public  works  and  buildings 4,000 

Superintendent   of    highways 5.000 

Chief  highway  engineer 5>000 

Supervising  architect    4,000 

Supervising  engineer   4,000 

Superintendent  of  waterways    5.000 

Superintendent  of  buildings 5.000 

Superintendent  of  purchases  and  supplies   5.000 

Superintendent  of  parks 2,500 

Department   of  Public   Welfare 

Director  of  public  welfare $7,000 

Assistant  director  of  public  welfare 4,000 

Alienist    . 5.000 

Criminologist    5.000 

Fiscal  supervisor  5.000 

Superintendent  of  charities 5.000 

Superintendent  of  prisons  5.000 

Superintendent  of  pardons  and  paroles 5.000 

Department  of  Public  Health 

Director  of  public  health $6,000 

Assistant  director  of  public  health 3.600 

Superintendent  of  lodging  house  inspection 3.000 

Department   of   Trade   and    Commerce 

Director  of  trade  and  commerce $7,000 

Assistant  director  of  trade  and  commerce 4,000 

Superintendent  of  insurance  5.000 

Fire  marshal    3'000 

Superintendent  of  standards 2,500 

Chief  grain  inspector   5.000 


598  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

Public  Utilities  commissioner   7,000 

Public  utilities  commissioner    7,000 

Public  utilities  commissioner    '; 7,000 

Public  utilities  commissioner    7,000 

Public  utilities  commissioner   7,000 

Secretary  of  public  utilities  commission 4,000 

Department  of  Registration  and  Education 

Director  of  registration  and  education  $5,ooo 

Assistant  director  of  registration  and  education 3,6oo 

Superintendent  of  registration   4,200 

The  code  specifically  provides  that  "each  officer  whose  office  is 
created  by  this  act  shall  be  appointed  by  the  governor,  by  and  with  the 
advice  and  consent  of  the  senate."  It  will  therefore  be  seen  that  all 
the  officers  named  in  the  preceding  list  are  to  be  appointed  by  the  gov- 
ernor; confirmation  by  the  senate  is  required. 

It  is  worthy  of  note  that  the  term  of  each  of  these  officers,  with  very 
few  exceptions,  is  made  to  expire  with  the  term  of  the  governor.  In 
Illinois  the  governor  serves  for  a  term  of  four  years.  Section  13  of 
the  act  provides ;  "Each  officer  whose  office  is  created  by  this  act,  except 
as  otherwise  specifically  provided  for  in  this  act,  shall  hold  office  for  a 
term  of  four  years  from  the  second  Monday  in  January  after  the  election 
of  the  governor,  and  until  his  successor  is  elected  and  qualified."  This 
provision  seems  to  be  in  harmony  with  the  theory  that  larger  power 
should  be  vested  in  the  hands  of  the  governor,  in  order  that  he  may  be 
made  more  directly  responsible  for  the  acts  of  his  subordinates. 

Governor  Lowden  in  his  campaign  for  election  pledged  himself 
to  carry  out  the  general  principles  of  reorganization  and  consolidation 
recommended  by  the  committee  on  efficiency  and  economy.  After  his  elec- 
tion he  used  his  influence  in  support  of  the  bill,  which  was  finally  enacted 
as  the  civil  administrative  code  of  Illinois  and  received  his  approval 
March  7,  191 7. 

Having  advocated  the  principles  embodied  in  the  report  of  the 
committee  and  having  been  responsible,  in  4arge  measure,  for  the 
formulation  and  enactment  of  the  code,  Governor  Lowden  has  been,  of 
course,  greatly  interested  in  the  measure  and  desirous  that  it  should 
fulfill  the  promises  made  to  the  people.  In  his  message  to  the  legislature 
in  1919  he  says: 

"The  civil  administrative  code  went  into  eflfect  on  July  i,  1917. 
It  amounted  to  a  revolution  in  government.  Under  it  a  reorganiza- 
tion of  more  than  one  hundred  and  twenty-five  boards,  commissions 
and  independent  agencies  was  effected.  Nine  departments,  with  ex- 
tensive and  real  power  vested  in  each  head,  have  taken  the  place  of 
those  bodies,  which  were  abolished,  and  discharged,  under  the  general 
supervision  of  the  governor,  the  details  of  government  for  which  the 
governor  is  responsible.  At  the  time  the  bill  was  up  for  consideration 
it  was  claimed  that  it  would  result  in  both  cfficiencv  and  economv. 


ON  ADMINISTRATIVE  REORGANIZATION  599 

"It  has  more  than  justified  the  expectations  that  were  formed 
concerning  it.  The  functions  of  the  government  are  discharged  at  the 
capitol.  The  governor  is  in  daily  contact  with  his  administration  in 
all  its  activities.  Unity  and  harmony  of  administration  have  been  at- 
tained, and  vigor  and  energy  of  administration  enhanced. 

It  seems  to  me  almost  providential  that  it  should  have  been  en- 
acted into  law  before  war  actually  came.  A  large  number  of  the 
state's  most  expert  officials  and  employees  were  drawn  upon  by  the 
government  at  Washington  because  of  the  exigencies  of  the  war. 
The  same  difficulties  arose  in  the  conduct  of  public  business,  which 
vexed  private  business  so  much.  There  was  necessarily  much  confu- 
sion. The  cost  of  all  supplies  rose  rapidly.  Unless  the  more  than 
hundred  scattered  agencies,  which  had  existed  heretofore,  had  been 
welded  by  the  civil  administrative  code  into  a  compact  and  coordinate 
government,  anything  like  efficient  state  government,  during  these 
difficult  times,  would  have  been  impossible.  Illinois,  through  the 
greater  elasticity  and  efficiency  of  her  new  form  of  government,  was 
able  to  meet  every  emergency  of  the  war  without  an  extraordinary 
session  of  her  legislature. 

"The  appropriations  made  by  the  last  general  assembly  were 
based  upon  pre-war  prices  and  conditions.  And  yet,  we  will  have 
completed  the  biennium  without  a  defficiency  in  any  department 
under  the  code,  with  the  exception  of  the  item  of  supplies  for  the 
charitable  and  penal  institutions  in  the  department  of  public  welfare." 

In  an  article  entitled  "Business  Government",  Governor  Lowden  in 
the  Saturday  Evening  Post  of  March  13,  1920,  sets  forth  pretty  fully 
what  he  considers  the  virtues  of  the  administrative  code,  now  in  force 
in  his  state.  He  explains  his  deep  interest  in  the  movement  for  the 
adoption  of  such  a  code  and  the  opposition  encountered  in  part  as 
follows: 

"In  my  campaign  for  election  I  made  the  reorganization  of  the 
business  of  the  state  the  chief  plank  in  my  platform.  The  people 
became  deeply  interested  and  supported  me  generously  when  the 
legislature  met  and  I  undertook  a  complete  reorganization  of  the 
work  of  the  state  which  came  under  the  duties  of  the  governor. 
Of  course  there  was  much  opposition  by  some  of  my  political  friends. 
They  did  not  like  to  see  these  attractive  places  given  up.  I  argued 
with  them  that  good  faith,  since  we  had  promised  this  reorganization 
in  our  party  platform,  required  that  we  should  keep  our  promise. 
I  also  urged  upon  my  party  friends  that  political  patronage  had 
always  been  overestimated  as  a  party  asset.  I  pointed  out  that 
our  greatest  victories  had  been  won  when  we  were  out  of  power 
and  without  patronage,  and  our  greatest  defeats  had  come  when 
we  were  in  full  possession  of  all  the  machinery  of  government.  I 
insisted  that  the  republican  party  could  thrive  only  when  it  stood 
for  principle  and  when  it  relied  upon  its  achievements.  I  appeared 
before  the  committees  of  the  general  assembly  and  discussed  with 
them  at  length  the  questions  involved,  and  before  long  there  was 
complete  cooperation  between  the  general  assembly  and  myself,  and 
to  the  credit  of  the  legislature  the  result  was  the  civil  administrative 
code." 


6oO  REPORT   OF   JOINT   LECISLATIXK    COMMITTEE 

A  careful  reading  of  the  list  of  good  places  still  at  the  governor's 
absolute  disposal,  "by  and  with  the  consent  of  the  senate,"  even  under  the 
new  code,  ought  to  satisfy  the  governor's  "political  friends"  that  reorgan- 
ization in  that  state  has  not  materially  lessened  the  "attractive  places" 
that  may  still  be  handed  out  to  the  faithful. 

Governor  Lowden  in  this  article  insists  that  "red  tape"  and  "sine- 
cures" have  been  eliminated,  but  avoids  any  detailed  statement  in  regard 
to  reduction  of  salaried  positions  or  large  savings  of  money.  About  the 
best  thing  he  has  to  ofifer  in  this  line  is  as  follows : 

"That  the  government  created  under  the  civil  administrative 
code  functioned  well  is  best  shown  by  the  fact  that  we  went  through 
the  entire  period  of  the  war  without  any  extraordinary  session  of 
the  general  assembly." 

The  governor  is  more  specific  in  his  claim  of  efficiency  under  the 
new  code.  He  says  that  there  is  absolute  harmony  of  administration 
under  the  nine  heads  of  departments,  which  function  very  satisfactorily 
with  one  another  and  with  the  governor.  In  fact  there  can  be  no 
doubt  that  Governor  Lowden  and  Governor  McKelvie  are  much  pleased 
with  the  statutory  provisions,  in  their  respective  states,  that  enable  them, 
to  change  all  important  appointive  positions  the>  minute  they  step  into 
office  and  fill  them  with  men  satisfactory  to  themselves.  This  feature 
of  the  administrative  reorganization  which  centers  larger  powers  in  the 
hands  of  the  governor  and  enables  him  to  put  on  duty,  in  all  departments, 
officers  politically  and  personally  in  harmony  with  himself  is  almost 
certain  to  make  consolidated  state  government  generally  popular  with 
chief  executives.  It  will  probably  end  distressing  wrangles  that  fre- 
quently occur  when  a  new  governor  is  striving  to  create  a  vacancy  in  an 
office  filled  by  a  hold-over  appointed  by  a  political  rival  and  predecessor. 

While  Governor  McKelvie,  of  Nebraska,  is  enthusiastic  over  our 
federal  government,  which  centers  responsibility  in  cabinet  chiefs.  Gov- 
ernor Lowden  seems  to  think  that  even  our  national  government  has  not 
attained  unto  absolute  perfection.     On  this  subject  he  says  in  part : 

"It  is  said  that  there  are  ten  departments  of  government  at 
Washington.  That  is  so  only  in  name.  In  fact,  there  are  many  times 
ten  independent  and  practically  unrelated  agencies  of  government 
there.  No  department  under  these  circumstances  can  avoid  becoming 
rigid  and  law  bound,  and  red  tape  necessarily  becomes  the  rule.  If, 
instead,  the  department  head  were  authorized  to  prescribe  the  duties 
of  subordinates  the  red  tape  would  largely  disappear.  The  re- 
sponsible head  would  have  power  commensurate  with  his  responsi- 
bility. Instead  of  an  inert  mass  you  would  have  a  living  organism 
with  an  actual  head." 

Governor  Lowden  then  goes  on  to  describe  operations  of  the  national 
government  under  existing  conditions  as  "confusion  worse  confounded", 


ON   ADMINISTRATIVE  REORGANIZATION 


6oi 


and  quotes  Hon.  James  W.  Good,  chairman  of  the  House  appropriations 
committee  as  follows : 

"Today 'duplication  in  the  government  service  abounds  on  every 
hand.  For  example,  eight  different  departments  of  the  government, 
with  large  overhead  organizations,  are  engaged  in  engineering  work, 
in  navigation,  irrigation  and  drainage;  eleven  different  bureaus  are 
engaged  in  engineering  research;  twelve  dift'erent  organizations  are 
engaged  in  road  construction;  while  twelve,  with  large  overhead 
organizations,  are  engaged  in  surveying  and  mapping.  Sixteen 
different  bureaus,  exercise  jurisdiction  over  water-power  develop- 
ment. Nine  different  organizations  are  collecting  information  on 
the  consumption  of  coal.  Forty-two  different  organizations,  with 
overhead  expenses,  are  dealing  with  the  question  of  public  health. 
The  treasury  department,  the  war  department,  the  interior  depart- 
ment and  the  department  of  labor  each  has  a  bureau  dealing  with 
the  question  of  general  education.  These  departments  operate  inde- 
pendently;  instances  of  cooperation  between  them  are  exceptional. 
Each  of  these  departments  is  manned  at  all  times  with  an  organiza- 
tion prepared  to  carry  the  peak  of  the  load,  and  maintains  an  ex- 
pensive ready-to-serve  personnel.  A  lack  of  cooperation  in  the 
executive  departments  necessarily  leads  to  gross  extravagance." 

The  conclusion  seems  naturally  to  follow  that,  after  a  state  govern- 
ment has  been  reorganized  and  consolidated  into  similitude  with  national 
government,  vigilance  will  still  be  necessary  to  make  it  function  in  the 
interest  of  efficiency  and  economy. 

Comment  of  the  public  press  has  been  generally  favorable  to  the 
Illinois  plan.  There  appears  to  be  some  uncertainty,  however,  as  to  its 
results  in  actual  saving  to  the  state.  The  advent  of  the  World  War 
and  consequent  high  prices  for  labor,  materials  and  supplies  of  all  kinds, 
of  course,  make  it  difficult  to  draw  comparisons  between  the  expenses 
under  the  civil  administrative  code  and  previous  cost  of  government 
under  the  law  that  it  superseded. 

The  harmonious  operation  of  the  different  departments  of  state 
government  under  the  larger  powers  granted  to  the'  governor  with  a 
tenure  of  office  limited  to  his  term  of  four  years,  seems  to  be  conceded. 
Governor  Lowden  bears  strong  testimony  to  this  "harmony"  and  he  is 
assuredly  in  position  to  speak  with  authority  on  this  subject. 

In  order  to  get  fuller  information  in  regard  to  the  procedure  of 
the  Illinois  efficiency  and  economy  committee,  letters  were  addressed 
to  those  familiar  with  its  work.  Under  date  of  July  26,  1919,  Professor 
John  A.  Fairlie,  director  of  the  Illinois  committee,  wrote  as  follows,  in 
answer  to  a  letter  of  inquiry: 

"After  the  committee  had  made  some  preliminary  inquiries, 
I  was  asked  to  outline  a  plan.  This  proposed  a  series  of  studies 
such  as  were  later  made  and  published  with  the  committee  report, 
based  on  a  preliminary  grouping  of  the  existing  state  agencies.  This 
plan   was   discussed   with   the   committee   and   approved:   and   men 


602  REl'OKT   OF  JOINT  LEGISLATIVE   COMMITTEE 

were  selected  by  me  for  each  of  the  special  studies.  This  included 
a  detailed  analysis  of  legislation,  judicial  decisions  and  the  published 
reports  of  the  agencies  in  each  group,  supplemented  by  data  secured 
by  personal  conferences. 

"Preliminary  reports  of  each  study  with  tentative  recommenda- 
tions were  presented  and  discussed  with  the  committee.  The  com- 
mittee then  published  a  brief  preliminary  report  outlining  the  gen- 
eral situation  and  principles  of  the  reorganization  projected.  This 
was  supplemented  by  brief  summaries  of  the  studies  and  tentative 
recommendations  which  were  mimeographed  and  sent  to  the  of- 
ficials and  private  organizations  and  individuals  interested  in  each 
section  of  the  work.  The  committee  then  held  a  series  of  hearings 
—  two  general  and  public  and  others  on  particular  topics  —  to 
which  invitations  were  sent  to  officials  and  others  specially  inter- 
ested. At  these  hearings  the  tentative  plans  were  discussed  in- 
formally, and  after  this  the  definite  recommendations  of  the  com- 
mittee were  determined  and  the  report  prepared. 

"The  general  plans  of  the  committee  report  were  endorsed  by 
both  the  leading  parties  in  1916  and  were  made  the  main  issue  by 
Governor  Lowden.  The  bill  for  the  administrative  code  was  pre- 
pared under  his  direction ;  and  with  his  active  support  was  passed 
in  1917.  This  year  this  has  been  followed  by  an  act  creating  a 
state  tax  commission. 

"If  I  can  be  of  any  further  assistance  in  the  Ohio  situation  I 
shall  be  glad  to  do  what  I  can." 

In  behalf  of  the  Ohio  committee,  another  letter  was  addressed  under 
date  of  July  29th,  asking  for  additional  information,  as  follows : 

"I  have  here  the  reports  of  the  committee  and  the  civil  ad- 
ministrative code  enacted  by  your  general  assembly.  The  report 
for  1915,  including  the  appendix  of  very  valuable  monographs 
covering  almost  a  thousand  pages,  is  of  great  value  to  any  committee 
making  an  investigation  of  its  state's  administrative  governmental 
agencies  with  a  view  to  reorganization  in  the  interest  of  efficiency 
and  economy.  This  work  which  has  been  done  under  your  direction, 
makes  unnecessary  much  that  should  otherwise  be  done  by  states 
undertaking  a  similar  work.  I  am  very  glad  that  you  had  these 
studies  published  in  a  form  so  complete  and  satisfactory. 

"As  yet  I  have  had  opportunity  to  make  only  a  hurried  survey 
of  the  work  done  by  your  committee.  It  seems  to  me,  however, 
that  while  the  civil  administrative  code  of  your  state  follows  in 
principle  the  recommendations  of  the  committee,  there  are  in  the 
code  some  things  outside  of  those  recommendations.  The  number 
of  administrative  state  officers  appointed  directly  by  the  governor 
seems  to  be  large  and  the  aggregate  of  the  salary  list  generous. 
I  am  wondering  how  nnich  saving  in  salaries  has  been  effected  by 
the  code  compared  with  the  amount  previously  paid  in  your  state. 

"Of  course  I  realize  that  the  salary  question  is  not  the 
only  one  involved  in  such  a  reorganization  as  has  been  brought  about 
in  your  state.  It  is.  however,  one  in  which  our  committee  is  inter- 
ested. Inasmuch  as  vour  civil  administrative  code  seems  to  be 
received  with  general  favor,  our  committee  desires  full  information 
in  regard  to  its  enactment  and  subsequent  results. 


ON  ADMINISTRATIVK  KEORGANIZATION  603 

"In  his  public  addresses  Governor  Lowden  has  declared  that 
the  reorganization  of  the  state  government  has  accomplished  all  that 
its  friends  expected.  I  note  that  your  committee  has  claimed  that  the 
enactment  of  its  report  into  law  would  result  in  a  direct  saving  to 
the  state  of  $600,000  a  year.    Does  the  new  code  accompHsh  that? 

"Forty  thousand  dollars  was  appropriated  for  your  committee. 
Do  you  have,  in  convenient  form  to  send  me,  a  statement  of  the 
expenses  of  the  committee?     If  so,  kindly  forward  it. 

"I  realize  that  I  am  asking  much  in  this  letter,  but  the  informa- 
tion requested  will  be  of  great  service  to  us  at  this  time." 

To  this  letter  Professor  Fairlie  replied,  under  date  of  August  2nd: 

"In  my  opinion  it  was  significant  in  the  name  of  the  Illinois 
committee  that  efficiency  came  before  economy.  •  Estimates  of  direct 
savings  were  made,  to  meet  the  demand  for  such  statements;  but 
throughout  the  report  the  emphasis  is  placed  on  other  matters,  and 
in  some  of  the  special  reports  it  is  definitely  stated  that  an  efficient 
administration  would  cost  more. 

"The  civil  administrative  code  made  some  changes  from  the 
plans  recommended  by  the  committee.  In  some  departments  a  more 
centralized  system  was  established;  but  some  of  the  recommenda- 
tions where  important  reductions  in  expenses  were  predicted  were 
omitted.  Some  of  them  have  been  acted  on  this  year, — as  the  ques- 
tion of  interest  on  state  deposits,  the  new  state  tax  commission,  and 
a  revision  of  commissions  in  collecting  taxes.  But  the  results  of 
these  will  not  appear  until  some  time  in  the  future. 

"When  the  bill  was  being  discussed  two  years  ago  a  compara- 
tive statement  of  salaries  was  made,  by  those  in  charge  of  the 
measure ;  but  I  do  not  know  where  to  find  this  now,  and  did  not 
have  any  direct  part  in  this  work  myself.  But  some  direct  reduc- 
tions were  made  e.  g.  in  the  salary  of  public  utility  commissioners. 
In  any  case  the  salary  matter  seems  to  me  a  relatively  small  part  of 
the  problem. 

"As  to  actual  results  under  the  new  code,  the  situation  has  been 
much  affected  by  the  general  rise  in  prices.  In  spite  of  this,  how- 
ever, Governor  Lowden  in  his  message  this  year  notes  that  the  ap- 
propriation of  1917  for  the  code  departments  had  not  been  increased, 
except  for  supplies  for  the  charitable  and  penal  institutions.  On 
the  other  hand  the  elective  state  officers  had  (as  usual)  requests 
for  deficiencv  appropriations  for  considerable  amounts. 

"A  detailed  study  might  make  possible  some  statistical  state- 
ments on  this  matter, 'but  I  am  not  able  to  undertake  this  just  now. 

"The  committee  did  not  expend  its  whole  appropriation.  As  I 
recall,  there  was  something  like  $10,000  left.  Statements  of  the 
expenses  will  be  found  in  the  state  auditor's  reports  of  1914  and 
1916.  The  main  items  were  for  the  preparation  of  the  special  re- 
ports and  drafting  of  bills.  The  hearings  of  the  committee  were 
informal ;  and  there  was  no  expense  for  lawyers  for  cross  examina- 
tions, nor  for  technical  accounting  investigations. 

"I  hope  this  information  will  be  of  some  assistance;  and  I 
shall  be  interested  in  the  progress  of  the  same  work  in  Ohio. 

"I  presume  you  are  aware  of  the  Idaho  and  Nebraska  reorgani- 
zations this  vear,  following  the  lines  of  Illinois." 


6o4 


Ki:i'()RT   OP'   JOINT   LKCJISLATIN'F.    COMMITTKE 


IOWA 

On  February  6,  1913  the  general  assembly  of  Iowa  adopted  a  reso- 
lution providing  for  a  joint  committee  on  retrenchment  and  reform  con- 
sisting of  the  chairmen  of  the  committees  on  ways  and  means,  judiciary 
and  appropriations,  and  two  members  of  the  minority  party  in  the  senate 
and  house  of  representatives. 

The  committee  was  authorized  to  employ  accountants  and  efficiency 
engineers  to  assist  in  the  inquiry  into  the  affairs  of  the  state  and  to 
institute  such  changes  in  administration  "as  will  promote  efficiency  and 
economy". 

A  report  was  made  to  the  general  assembly  on  April  4th,  trans- 
mitting the  findings  of  the  efficiency  engineers  employed  to  investigate 
the  department  of  agriculture  and  the  state  fair. 

On  Nbvember  12,  1914  the  committee  made  a  report  recommending 
the  reorganization  of  the  state  government  in  accordance  with  the  fol- 
lowing arrangement: 


Department  of  Social  Progress 

To  include   and   have   supervision  over  the   following  existing 
departments : 

1.  Superintendent  of  public  instruction. 

2.  Board  of  educational  examiners. 

3.  State  library. 

4.  Geological   survey  removed  to   Iowa   City  and   placed   in  geo- 
logical department. 

5.  Historical  department. 

6.  Historical  society  of  Iowa. 

7.  Academy  of  science. 

8.  Public  archives. 

9.  Library  commission. 
•  10.     Board  of  control. 

11.  Board  of  parole. 

12.  Board  of  education. 

Department  of  Industries 

To  include  and  have  supervision  over  the   following  existing 
departments : 

1.  Department  of  agriculture. 

2.  Weather  and  crop  bureau. 

3.  State  veterinary  surgeon. 

4.  Commission  of  anim.al  health. 

5.  Horticultural  society. 

6.  Inspector  of  bees. 

7.  State  entomologist. 

8.  Dairy  association. 

9.  Beef  cattle  breeders'  association. 

10.  State  and  county  fairs. 

11.  Railroad  commission. 


ON   ADMINISTRATIVE  REORGANIZATION  605 


Commerce  counsel. 

Commissioner  of  insurance. 

Industrial  commissioner. 

Bureau  of  labor  statistics. 

Banking. 

Bank  examiner. 

County  examiner. 

City  Examiner 

Public  accountant. 


Department  of  Public  Safety 

To   include  and  have   supervision  over   the   following  existing 
departments: 

1.  Attorney  general. 

2.  Adjutant  general. 

3.  State  militia. 

4.  Fish  and  game  warden. 

5.  State  highway  commission. 

6.  Custodian  of  public  buildings  and  property. 

7.  Capitol  extension. 

8.  Land  office. 

9.  Meandered  lakes. 

10.  Fire  marshal. 

11.  Board  of  health. 

12.  Board  of  medical  examiners. 

13.  Board  of  optometry  examiners. 

14.  Board  of  law  examiners. 

15.  Board  of  dental  examiners. 

16.  Commission  of  pharmacy. 

17.  Veterinary  examining  board. 

18.  Dairy  and   food   commission. 

19.  All  examiners  of  this  division. 

20.  Oil  inspectors. 

21.  Inspectors  of  boats. 

22.  Mine  inspectors. 

23.  Board  of  examiners  for  mine  inspection,  etc. 

24.  Automobiles. 

25.  Board  of  voting  machine  commissioners. 

The  committee  also  made  the  following  suggestions  based  upon  the 
proposed  reorganization  of  the  state  government: 

"If  the  foregoing,  or  substantially  similar  methods  of  unification 
be  adopted,  and  ample  authority  in  supervision  be  granted  the  heads  of 
the  three  great  departments,  there  must  result  much  in  economy  and 
efficiency. 

"Every  such  appointee  should  be  subject  to  removal  by  the  governor 
for  cause.  The  ability  of  the  individual  appointed  should  govern. 
Political  affiliation  should  not  control.  No  employe  should  be  perrnitted 
to  work  for  any  candidate  for  any  office  or  contribute  to  any  candidacy 
while  on  the  payrolls  of  the  state.  Severe  penalties  should  follow 
violation  of  this  provision,  such  as  removal  from  office,  imprisonment 
and  payment  of  a  substantial  sum  in  money  to  be  recovered  by  the  state 
upon  the  official's  bond  by  action  in  equity  at  the  seat  of  government. 
Thus  will  the  building  up  of  a  political  machine  be  made  impossible. 


6o6  KKI'OKT   OF   JOINT   LI£(;iSr,.\TI\K   COMMITTEE 

"All  the  employe's  time  should  be  required  by  the  state,  and  anyone 
unwilling  to  work  approximately  the  same  number  of  days  and  hours 
per  day  demanded  in  other  business  enterprises  should  be  removed  from 
office.  The  time  clock,  universally  in  use  in  business  establishments  of 
any  size  through  the  country,  should  be  installed  by  the  state.  The  time 
clock  will  not  injure  the  prompt  and  it  will  spur  the  laggard,  and  we  see 
no  good  reason  why  the  state  should  not  in  this  particular,  as  well 
as  others  adopt  proven  business  methods. 

"Duplication  of  records  of  the  state's  business  as  now  prevails  could 
be  avoided  by  unity  of  operation  and  management  The  nuriiber  of 
.  regular  clerks  could  be  materially  reduced,  especially  by  having  a  few 
general  clerks  to  serve  wherever  the  state's  business  may  require  tem- 
porary extra  help.  Heads  of  minor  departments  should  be  guided  by  a 
general  system  of  regulation.  Authority,  and  with  it  responsibility,  for 
success  or  failure  would  be  centered  —  the  chief  of  the  division  to  the 
head  of  the  great  department  of  which  that  division  formed  a  part,  the 
department  head  to  the  governor  and  the  governor  to  the  people  and  thus 
will  a  government  most  responsive  to  the  will  of  the  people  be  secured. 
Much  more  may  be  said  but  the  foregoing  is  sufficient  for  present 
purposes." 

On  February  20,  191 5  the  committee  made  a  report  including  drafts 
of  eight  bills  intended  to  make  efifective  in  legislation  the  recommenda- 
tions of  the  previous  report.  With  each  bill  there  was  submitted  a  brief 
explanation  making  clear  its  purpose. 

The  intent  of  the  committee  and  its  practical  approach  to  the  problem 
that  it  had  under  consideration  is  indicated  by  the  following  excerpt 
from  the  carefully  written  introduction  to  the  bills  submitted. 

"There  are  three  elements  contained  in  our  proposed  reform. 

1st.      Efficiency. 
2nd.     Economy. 

3rd.     The  fixing  of  responsibility   for  the  purpose  of  making  the 
government  more  responsive  to  the  will  of  the  people. 

"The  main  idea  with  us  is  efficiency.  The  economy  will  at  once  be 
felt  in  the  getting  of  greater  results  from  what  we  spend  and  this  will 
gradually  show  more  and  more  as  under  our  plan  of  competent  and 
comprehensive  and  co-ordinated  management  the  details  of  the  system 
will  work  toward  a  more  direct  and  economical  basis. 

"We  do  not  enter  upon  the  field  of  speculative  reorganization  but 
simply  undertake  to  establish  a  business  management,  taking  things  as 
we  find  them.  While  the  committee  is  in  sympathy  with  many  of  the 
proposed  theoretical  reforms  in  government,  yet  we  have  not  considered 
it  our  field  to  undertake  to  work  out  any  of  these,  leaving  that  field  to 
general  legislation.  As  a  matter  of  fact  our  work  is  not  in  conflict  with 
any  of  these,  and  is  in  harmony  with  some  of  them,  but  the  reforms  pre- 
."^ented  in  this  report  are  essentially  practical,  not  theoretical,  in  spirit. 

"We  ask  that  the  proposed  reforms  suggested  by  the  committee 
shall  be  judged  only  by  the  re])orts  issued  by  the  committee  and  the 
measures  proposed  to  be  enacted  into  law,  as  there  are  many  things 
suggested  in  the  rei)ort  of  the  effiiciency  engineers  and  in  the  discussions 
of  these  matters  issued  from  other  .<;ourccs,  with  which  this  committee  is 
not  wholly  in  sympathy  and  there  are  other  suggestions,  while  we  may 


ON  ADMINISTRATIVE  REORGANIZATION  607 

have  believed  them  to  be  based  upon  sound  judgment,  we  have  not 
deemed  it  wise  to  attempt  to  include  in  our  recommendations  for  present 
legislation.  We  urge  the  reading  of  the  preliminary  report  issued  by  the 
"committee  of  thirty"  business  men  of  the  Minnesota  legislature  for  the 
purpose  of  information,  but  wish  to  keep  before  the  minds  of  the  mem- 
bers of  the  Iowa  legislature  the  fact  that  this  committee  is  approaching 
the  consideration  of  these  problems  from  a  very  practical  and  conserv- 
ative point  of  view." 

On  April  14,  191 5  the  committee  submitted  its  final  report  giving  a 
general  survey  of  its  work  and  including  an  itemized  statement  of  sav- 
ings already  effected  through  their  recommendations.  These  aggregate 
something  over  $120,000. 

The  committee  declares  that  if  the  bill  introduced  providing  for  the 
reorganization  of  the  state's  business  in  accordance  with  recommendations 
had  become  a  law  a  very  much  greater  saving  would  have  resulted  to  the 
state  through  the  coordination  and  consolidation  of  departments. 

Just  what  virtue  there  is  in  the  claim  of  the  committee,  in  regard 
to  the  actual  savings  brought  about  through  its  influence  and  to  what 
extent  these  would  have  resulted  without  the  committee  may  be  prob- 
lematic. It  is  safe  to  conclude,  however,  that  in  Iowa  as  in  other  states 
the  presence  and  work  of  such  a  committee  has  a  substantial  value  in 
directmg  public  opinion  to  problems  of  state  government  even  where  no 
very  material  changes  in  legislation  result. 

KANSAS 

Kansas  took  steps  for  reorganization  of  her  state  government  in 
191 5.  On  March  20th  of  that  year  a  resolution  was  adopted  by  the 
general  assembly  of  that  state  creating  an  efficiency  and  economy  com- 
mission consisting  of  two  members  of  the  senate  and  one  member  of 
the  house  of  representatives.  The  senate  and  the  house  each  selected 
one  member  and  the  governor  appointed  the  third  member. 

The  committee  was  authorized  to  investigate  the  management  of 
every  institution  and  department  of  the  state  government  of  Kansas ; 
also  the  number  and  duties  of  employes  of  the  senate  and  the  house  of 
representatives. 

The  committee  was  directed  to  make  to  the  legislature  and  to  the 
governor  a  report  of  its  findings,  including  deserved  criticisms  and 
recommendations  for  "improvements  of  any  kind  that  will  facilitate 
the  business  or  management  of  public  affairs."  The  members  of  the 
committee  were  to  serve  without  compensation  but  their  necessary  travel- 
ing expenses  were  to  be  paid. 

A  partial  report  was  made  Dec.  16,  1916.  It  included  the  following 
recommendations : 

"i.      The  reduction  in  the  number  of  officers  and  employees  of  the 
legislature. 
2.     The  adoption  of  the  budget  system  with  the  principal  features 
of  the  Wisconsin  system. 


6o8  REPORT   OF   JOINT  LEGISLATIVE   COMMITTEE 

3.  One  tax  commissioner  instead  of  three. 

4.  A  commissioner  of  educational  institutions  in  place  of  the 
board  of  administration. 

5.  A  commissioner  of  penal  and  charitable  institutions. 

6.  A  commission  of  administration  consisting  of  the  governor, 
commissioner  of  educational  institutions,  commissioner  of 
penal  and  charitable  institutions,  state  accountant  and  tax 
commissioner. 

7.  The  creation  of  a  general  emergency  fund,  available  for  all 
departments  of  the  state  government  to  meet  emergency  needs. 

8.  A  uniform  system  of  accounting. 

9.  Monthly  expense  reports  of  all  departments. 

10.  A  central  store  and  purchasing  agent. 

11.  Daily  deposit  in  the  state  treasury  of  all  moneys  collected  by 
any  departments. 

12.  Criticism  of  civil  service  system  and  suggestions  of  changes. 

13.  A  department  of   agriculture   that  shall  include   all   other  de- 

partments that  have  to  do  directly  or  indirectly  with  agricul- 
ture. 

14.  An  extension  of  authority  to  the  chief  justice  of  the  supreme 
court  to  delegate  judges  in  one  district  to  try  cases  in  another 
district. 

15.  The  employment  of  special  architects  to  design  special  build- 
ings involving  large  expenditure  of  money,  leaving  to  the  state 
architect  designs  for  minor  buildings  and  repairs. 

16.  One  utility  commissioner  instead  of  three. 

17.  The  abandonment  of  schools   for  colored  pupils. 

18.  Restriction  of  courses  offered  by  the  state  normal  schools. 

19.  The  discontinuance  of  the  last  two  years  of  medicine  in  the 
courses  now  prescribed  by  the  state  medical  school. 

20.  The  abandonment  of  school  of  mines,  experiment  station, 
agricultural  academy  and  the  school  of  journalism  at  the 
agricultural  college. 

21.  Opposition  to  furnishing  further  class-room  and  space  for  the 
state  university  and  agricultural  college." 

The  committee  was  of  the  opinion  that  a  different  distribution  of 
class-room  work  throughout  the  week  would  entirely  obviate  the  necessity 
of  furnishing  additional  space  for  the  university  and  agricultural  college. 

From  the  time  that  the  committee  was  organized  there  appears  to 
have  been  a  lack  of  harmony  among  its  members.  Senator  J.  D.  Joseph, 
appointed  by  the  senate  as  a  member  of  the  committee,  made  a  separate 
report,  covering  75  pages,  which  is  in  large  part  a  dissent  from  the  recom- 
mendations of  the  majority  of  the  committee.  The  senator  opposed 
reducing  the  membership  of  important  com-missions.  He  was  verv 
emphatic  in  his  recommendation  for  more  space  for  the  Kansas  state 
university  and  backed  up  his  decision  with  a  table  showing  that  other 
state  universities  are  supplied  with  larger  class-room  sjxace  in  proportioi. 
to  the  number  of  students  in  attendance. 


ON  ADMINISTRATIVE  REORGANIZATION  609 

In  the  introduction  of  his  report  Senator  Joseph  says : 

"What  our  industrial  "and  religious  institutions  need  is  HELP, 
not  HINDRANCE,  encouragement  and  not  persecution.  A  senti- 
ment cultivated  for  each  to  regard  the  other  as  a  part  of  the  same 
body  —  this  commonwealth  —  that  the  help  of  any,  means  the  help 
of  all,  and  the  injury  of  any  means  the  injury  to  all." 

He  criticises  the  methods  of  Senator  Lambertson,  chairman  of  the 
committee,  and  says  among  other  things:  "The  report  is  substantially 
the  same  the  senator  could  as  well  have  made  if  he  had  never  visited 
the  state  institutions  or  ofiUces  or  consulted  with  Mr.  Burton,  (the  other 
member  of  the  committee)  myself,  or  any  one  else." 

In  conclusion  he  declares  in  favor  of  the  existing  order  of  things 
in  Kansas  as  follows : 

"I  wish  also  to  remind  in  conclusion,  that  all  the  taxes  paid  for 
state  purpose  including  all  state  institutions,  the  price  is  only  one- 
tenth  of  our  taxes  and  while  I  have  made  many  recommendations, 
suggestions  and  in  some  cases  assumed  the  role  of  critic,  I  think  it 
safe  to  say  that  our  state  taxes,  being  only  one-tenth  of  all,  are  the 
most  economically  and  efficiently  expended  of  all  our  taxes. 

"All  praise  to  Kansas." 

Regardless  of  the  apparently  inharmonious,  inconsequential  work 
of  the  committee,  the  movement  for  the  consolidation  of  governmental 
agencies  went  steadily  forward  in  Kansas. 

In  1917,  the  legislature  enacted  a  law  said  to  embrace  a  state 
manager  plan  for  Kansas.  It  organizes  many-  departments  and  offices 
under  a  single  head  of  four  members.  The  first  report  of  the  board,  for 
the  fiscal  period  ending  June  30.  1918  contains  the  following  statement 
as  to  the  "evolution  of  the  one-board  idea"  in  that  state: 

"Prior  to  1905  the  various  state  institutions  of  Kansas,  gen- 
erally classified  under  three  heads,  —  educational  penal  and  char- 
itable were  separately  governed  as  to  groups.  The  educational  in- 
stitutions were  governed  by  boards  of  regents,  viz.:  six  regents 
governing  the  university  of  Kansas  with  one  honorary  member: 
seven  regents  governing  the  state  agricultural  college ;  and  one  board 
of  six  regents  governing  the  three  normal  schools,  with  an  addi- 
tional three  honorary  members.  The  penitentiary  was  governed  by 
a  board  of  directors  consisting  of  three  members.  The  Hutchinson 
reformatory  was  governed  by  a  board  of  managers  consisting  of 
three  members.  The  charitable  institutions,  including  the  hospitals, 
for  the  insane,  boys'  and  girls'  industrial  schools,  the  school  for 
the  blind,  the  school  for  the  deaf  and  the  home  for  the  feeble- 
minded, were  governed  by  a  state  board  of  charities,  consisting  of 
five  members  —  total  thirty-four. 

"In  1905,  the  legislature  abolished  the  state  board  of  charities, 
consisting  of  five  members,  and  created  in  its  stead  the  state  board 
of  control,  consisting  of  three  members,  to  have  charge  of  the  nine 
institutions  formerly  managed  by  the  state  board  of  charities. 
39 


6lO  KlirOKT   OF   JOINT   LEGISLATUE   COMMITTEE 

"In  1913,  the  legislature  abolished  the  three  boards  of  regents, 
with  a  total  of  twenty-three  members,  then  governing  the  educa- 
tional institutions,  and  created  the  state  board  of  administration,  to 
consist  of  three  members,  to  have  charge  of  these  institutions, 
adding  to  the  list  of  institutions  formerly  governed  by  the  various 
boards  of  regents,  the  school  for  the  blind  and  the  school  for  deaf. 
The  legislature  of  1913  also  abolished  the  boards  of  directors,  con- 
sisting of  eight  members,  controlling  the  penitentiary  and  re- 
formatory, and  created  the  state  board  of  corrections,  to  have 
charge  of  these  institutions,  adding  to  their  charge  the  boys'  in- 
dustrial school  and  girls'  industrial  school. 

"The  legislature  of  1917  abolished  these  three  boards,  with  a 
total  membership  of  nine  members  and  created  the  state  board  of 
administration  consisting  of  four  members,  including  the  governor, 
who  is  ex-officio  chairman  of  the  board,  and  providing  for  the  em- 
ployment by  the  board  of  a  business  manager.  These  five  people 
have  the  management  of  all  of  the  state  institutions  except  the 
soldiers'  home  and  the  Mother  Bickerdyke  home,  the  managemeiit 
of  which  is  retained  by  soldiers  of  the  civil  war.  A  list  of  the  insti- 
tutions under  control  of  this  board  will  be  found  on  the  third  page 
of  this  report. 

"We  believe  this  to  be  the  most  radical  change  in  institutional 
management  ever  undertaken  in  the  United  States.  It  is  an  ex- 
periment which  has  been  watched  with  interest  all  over  the  country, 
as  fully  attest  the  countless  inquiries  concerning  it. 

"The  members  of  the  board  and  the  business  manager  have 
been  properly  impressed,  we  trust,  with  the  importance  of  the 
task  committed  to  their  charge,  and  in  this  report  give  their  first 
formal  account  of  their  stewardship." 

The  Topeka  Capital  of  June  8,  1919  contains  a  very  interesting  and 
informing  article  on  the  experience  of  Kansas  under  the  caption  of 
"BUSINESS  SENSE  PAYS  THE  STATE".  The  following  excerpts 
are  made  from  the  article : — 

"Kansas,  which  in  times  past  has  been  prone  to  take  energetic 
kicks  at  so-called  'big  business',  now  appreciates  that  big  business 
methods,  when  applied  to  the  advantage  of  the  state,  aren't  so  bad 
after  all. 

"James  A.  Kimball,  of  Salina,  became  business  manager  for 
twenty-six  state  institutions  of  Kansas,  spending  $5,000,000  an- 
nually, just  two  years  ago.  He  faced  an  unlimited  number  of  per- 
plexing problems.  The  institutions  include  universities,  colleges, 
prisons,  asylums,  orphanages,  industrial  farms,  and  hospitals.  One 
institution  operates  a  coal  mine  and  brick  plant.  The  needs  of  the 
various  plants  range  from  pins  to  half-million  dollar  buildings.  The 
employes  include  college  presidents  and  numerous  ditch-diggers. 
Previous  administration  of  all  these  institutions  has  been  under 
separate  boards  and  executives.  Mr.  Kimball  was  expected  to  be 
a  general  manager  for  the  entire  system,  scattered  in  as  many  towns 
over  the  state  as  there  are  institutions. 

"The  legislature  of  January  and  February,  1917,  had  provided 
a  budget  that  did  not  take  into  account  such  things  as  war  prices 
and   government    regulation    of   materials. 


ON  ADMINISTRATIVE  REORGANIZATION'  6l  1 

"The  plan  of  a  state  business  manager  was  decidedly  an  ex- 
periment— a  case  of  pioneering.  There  were  dismal  failures  pre- 
dicted for  the  new  business  machine  consisting  of  one  board  of 
administration  of  three  members  taking  the  place  of  the  various 
old  boards,  commissions,  committees,  and  secretaries.  This  board 
was  to  be  a  board  of  directors,  determining  policy,  with  Mr.  Kim- 
ball directing  the  expenditure  of  the  dollars. 

"The  state  business  manager  took  office  on  July  i,  1917.  He 
accepted  the  appointment  with  previous  extensive  experience  in  the 
wholesale  grocery  and  candy  business  as  well  as  experience  as  a 
drygoods  salesman.  His  immediate  problem  as  he  expressed  it 
was  'to  concentrate  the  buying  power  of  the  dollar.'  There  has  to 
be  a  saving  to  meet  war-time  prices  on  a  peace-time  budget." 

After  describing  Mr.  Kimball's  method  of  securing  cooperation 
when  he  began  his  work  as  state  manager,  the  following  statement  is 
made,  indicative  of  the  general  satisfaction  that  prevails  in  the  state 
with  the  working  of  the  new  plan : 

"The  best  proof  that  the  state  business  manager  plan,  con- 
ducted on  the  basis  of  up-to-date  business  methods,  has  been 
successful  is  the  fact  that  the  1919  legislature  was  called  upon  to 
make  practically  no  deficiency  appropriations  —  an  unheard  of  thing 
previously  under  the  regime  of  many  commissions. 

"The  legislature  showed  its  appreciation  by  adding  to  the 
authority  of  the  state  business  manager." 

In  the  state  of  Kansas,  it  is  popularly  believed  that  a  very  radical 
step  has  been  taken  in  the  consolidation  of  state  governmental  agencies. 
The  declaration  is  frequently  made  that  Kansas  has  adopted  "the  state 
manager  plan."  The  impression  conveyed  is  that  the  change  effected 
in  the  -state  government  brings  it  under  the  system  exemplified  in  the  city 
manager  plan.  In  other  words,  we  are  told  that  the  state  manager  is 
to  the  state  of  Kansas  what  the  city  manager  is  to  a  large  city.  The 
conclusion  is  hastily  reached  by  the  superfiscial  reader  and  investigator 
that  in  Kansas  the  business  manager  has  practically  complete  control 
over  all  the  administrative  agencies  of  the  state.  This  is  a  mistake ; 
the  board  of  administration  is  the  controlling  power  and  the  business 
manager  is  vvhat  his  title  suggests,  a  fiscal  agent  who  has  large  powers 
so  far  as  the  financial  aiYairs  of  the  state  are  concerned.  Over  appoint- 
ments he  seems  to  have  no  control,  except  indirectly  through  the  board 
of  administration. 

His  work  is  confined  to  the  educational,  benevolent  and  penal  insti- 
tutions of  the  state.  He  presents  their  needs  through  his  board  to  the 
legislature  and  uses  the  appropriations  to  secure  the  best,  possible  returns 
in  improvements,  supplies  and  service  to  the  state. 

Some  idea  of  the  magnitude  of  this  work  is  gleaned  from  the  fol- 
lowing excerpts  from  the  report  of  the  board  of  administration: — 

"There  are  twenty-five  state  institutions  under  the  control  of 
this  board.     For  the   support  of  these  twenty-five  institutions  the 


6l2  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

last  legislature  appropriated  $6,413,202  for  maintenance  and  salaries 
for  the  biennium  ending  June  30th,  1919;  and  in  addition  to  the 
sum  for  salaries  and  maintenance,  $996,718.18  were  appropriated 
for  buildings  and  improvements  for  the  biennium  ending  June  30th, 
1919;  total  $7,409,920.18. 

"It  should  be  borne  in  mind  that  in  the  institutions  classified 
as  penal  and  charitable  there  are  7,138  people  who  must  be  fed 
and  clothed  on  fixed  appropriations  made  at  a  time  when  prices 
of  all  necessary  things  for  their  sustenance  and  comfort  were,  at 
the  lowest  estimate  50%  less  than  they  are  now.  Every  house- 
holder can  realize  the  difficulty  of  this  task,  and  that  it  has  been 
performed  without  a  deficit  in  any  of  the  institutions  is  almost  an 
unbelievable  fact.  For  this  splendid  result  too  much  credit  can  not 
be  given  to  our  able  and  tireless  business  manager." 

In  order  that  the  Kansas  situation  may,  if  possible,  be  more  readily 
understood  in  this  brief  survey,  a  list  of  the  institutions  under  the  board 
of  administration  and  served  by  the  business  manager  is  here  given.  It 
is  as  follows : 

State  Boards  and  Commissions  of  Kansas  Under  Control  of 
THE  Board  of  Administration 

Industrial   Institutions 

University  of   Kansas 

Kansas  state  agricultural  college 

State  normal  school 

Manual  training  school 

Fort  Hays  Kansas  normal  school 

School  for  deaf 

School  for  blind 

Kansas  medical  school 

State  fish  hatchery 

Irrigation  experiment  station    (at  Tribune) 

Irrigation  experiment  station  (at  Garden  City) 

Agricultural    experiment   station   fat   Colby) 

Agricultural   experiment   station    (at  Fort  Hays) 

Officers 
State  dairy  commissioner  State  veterinarian 

State  geologist  State  forester 

State  entomologist  Feeding  Stuffs  inspector 

Charitable  Institutions 
Topeka  state  hospital  State  orphans'  home 

Parsons  state  hospital  Osawatomie  state  hospital 

School   for   feeble-minded  youth  Lamed  state  hospital 

State  tubercular  sanatorium 

Correctional  Institutions 
Penitentiary 

Industrial    reformatory    for    young   men 
Industrial  school  for  boys 
Industrial  school  for  girls 
Industrial  farm  for  women 


ON  ADMINISTRATIVE  REORGANIZATION 


613 


Educational  Institutions  Under  the  Supervision  but  Not  Under 
Control  of  the  Board  of  Administration 

Industrial  and  educational  institute   (Colored) 
Industrial   department,    western   university    (Colored) 

The  foregoing  institutions  represent  the  field  of  state  authority 
under  the  board  of  administration.  The  financial  affairs  of  all  of  these 
are  directed  by  the  business  manager.  His  field,  though  large,  by  no 
means  includes  all  the  governmental  agencies  of  the  state.  There  are, 
of  course,  the  elective  officers,  but  in  addition  to  these  there  are  many 
appointive  officers  and  boards  whose  work  is  entirely  independent  of 
the  board  of  administration. 

Here  is  a  list  taken  from  a  recent  directory  furnished  by  the  secre- 
tary of  state  of  Kansas : 


State  accountant 

Adjutant  general 

Agent  of  state  at  Washington 

Assistant    commissioner    of    labor 

and  industry 
Election  commissioners 
Fire  marshal 
Grain  inspector 
Irrigation  commissioner 
Military  officers  of  governor's  staflf 
Oil  inspector 
Custodian  of  state  house 
Electrician  of  state  house 
Advisory    commission,    sanatorium 

for  tuberculosis  patients 
Board  of  agriculture 
Appointees  of  board  of  agriculture 
Board  of  barber  examiners 
Civil  service  commission 
Board  of  education 
Entomological  commission 
Historical   society  and  department 

of  archives 
Horticultural  society 
Trustees  of  John  Brown  memorial 

park 
Kansas  highway  commission 
Board  of  medical  examination  and 

registration 
Memorial  hall  building  commission 
State  mining  commission 


Board  of  examiners  for  trained 
nurses 

Board  of  optometry 

Board  of  osteopathic  examination 
and  registration 

Board  of  trustees  for  Pawnee  Rock 

Board  of  pharmacy 

School  book  commission 

Board  of  managers  of  state  sol- 
diers' homes 

Tax  commission 

Board     of     veterinary     examiners 

Kansas  water  commission 

State  architect 

Bank  commissioner 

Commissioner  of  labor  and  in- 
dustry 

Entomological  commissioner 

Fish  and  game  warden 

Hotel  commissioner 

Live  stock  sanitary  commissioner 

State  librarian 

Engineer  of  state  heating  plant 

Academy  of  science 

Board  of  chiropractic  examiners 

Board  of  dental  examiners 

Board  of  embalming 

Board  of  health 

Industrial  welfare  commission 

State  fair  managers 

Miners'  examining  board 

Kansas  state  board  of  review 

Public  utilities  commission 


It  will  therefore  be  seen  that  on  the  whole  the  consolidation  of  the 
state  governmental  agencies  in  Kansas  has  not  been  more  radical  than 


6l4  REPORT   OF   JOINT   LF.GISLATIN  E   COMMITTEE 

in  some  other  states.  In  fact,  there  apparently  has  been  no  effort  to  re- 
organize the  state  government  as  a  whole,  to  reduce  materially  the  num- 
ber of  salaried  officers,  or  to  reduce  the  pay  of  those  in  the  state  service. 
In  answer  to  a  letter  of  inquiry  the  following  statement  has  been 
received  from  a  state  officer  in  Kansas : 

"You  ask  if  the  adoption  of  the  state  manager  plan  —  so  called 
—  has  reduced  salaries  or  eliminated  salaried  officers.  Such  was 
not  the  idea  in  creating  the  position  'business  manager'  under  the 
board  of  administration  of  state  institutions.  He  is  merely  what 
the  title  implies,  a  special  deputy  of  the  board  of  administration 
having  general  supervision  over  the  'business'  end  of  the  work  of 
the  board  of  administration.  He  has  nothing  whatever  to  do  with 
other  state  officers  or  departments  than  those  under  the  immediate 
control  of  the  board  of  administration.  Salaries  were  raised  ma- 
terially by  the  last  regular  session  of  our  legislature  —  those  under 
the  supervision  of  the  business  manager  more  than  those  not  under 
his  supervision.  So  far  we  have  no  published  list  of  the  salaries 
now  in  force  except  that  in  the  session  laws  of  1919  which  have 
just  been  published." 

It  is  observed,  however,  that  there  is  general  satisfaction  with  the 
change  effected  in  the  state  government  and  that  the  board  of  adminis- 
tration and  its  business  manager  have  the  confidence  of  the  people  of 
Kansas  as  reflected  in  acts  passed  at  the  recent  session  of  the  general 
assembly  of  that  state. 

MASSACHUSETTS 

Massachusetts  seems  to  have  been  at  work  longer  than  any  other 
state  in  an  effort  to  consolidate  her  government  in  the  interest  of  efficiency 
and  economy.  A  commission  was  authorized  for  this  purpose  in  an  act 
approved  June  6,  1912.  This  was  amended  June  25,  1914.  An  Act  of 
June  I,  1916  abolished  the  efficiency  and  economy  commission  and  trans- 
feired  the  duties  exercised  by  it  to  a  supervisor  of  administration. 

As  first  organized  the  chairman  of  the  commission  on  efficiency 
and  economy  was  appointed  and  designated  by  the  governor.  He  re- 
ceived a  salary  of  $5,000;  two  other  members  appointed  by  the  governor, 
received  salaries  of  $4,500  each.  A  commissioner  was  appointed  each 
year  to  serve  a  term  of  three  years. 

The  powers  and  duties  of  the  commission  are  summarized  as  follows : 

To  examine  annual  estimates  of  the  various  departments;  to  make 
special  examination  of  any  matter  affecting  the  finances  in  any  depart- 
ment, at  the  request  of  the  general  court,  the  ways  and  means  committee, 
governor,  or  committee  on  finance,  or  the  governor's  council  or  upon 
their  own  initiative ;  to  inquire  into  the  law  governing  financial  transac- 
tions; to  study  possibilities  of  promoting  greater  economy,  efficiency  and 
utility  in  the  transaction  of  business,  by  changes  in  law,  by  reorganiza- 
tion of  departments,  by  dilTcrcnt  methods  of  administration,  by  classi- 


ON  ADMINISTRATIVE  REORGANIZATION  615 

fication  of  employes,  by  fixing  maximum-  and  minimum  salaries,  by 
reorganizing  a  central  purchasing  agency,  by  substitution  of  the  budget 
method.  The  commission  was  required  to  report  from  time  to  time  to 
the  governor  and  general  court. 

Appropriations  were  made  for  the  commission  as  follows : 

1912,  $18,500;  1913,  $28,500;  1914,  $28,500;  1915.  $39,000. 

The  commission  made  annual  reports  for  the  years  191 3,  1914  and 
1915.     It  made,  also,  special  reports  as  follows: 

Report  on  reorganization  of  boards  and  commissions  having  super- 
vision and  control  of  state  institutions,  February  7,   1914. 

Report  on  functions,  organizations,  and  administration  of  depart- 
ments of  the  executive  branch  of  the  state  government,  Nov.  1914. 

Report  on  budget  procedure,  May  26,  1916. 

Of  special  interest  is  the  report  prepared  by  the  commission  on  the 
functions,  organizations  and  administrations  of  departments  of  the  execu- 
tive branch  of  the  state  government.  This  report  was  prepared  in  co- 
operation with  the  various  agencies  in  charge  of  the  different  depart- 
ments, ofifijces,  boards  and  commissions  conducting  the  administrative 
work  of  the  state.  The  material  was  furnished  largely  by  those  in 
charge.  Where  satisfactory  answers  were  not  given  to  questionnaires, 
representatives  of  the  commission  itself  made  personal  investigation  and 
collected  the  desired  information. 

The  result  of  the  survey  thus  made  has  been  published  in  a  report 
covering  513  pages.  It  is  a  very  complete  presentation  of  the  admin- 
istrative agencies  and  activities  of  the  state  and  gives  to  those  interested 
a  concise  and  comprehensive  view  of  the  government  of  the  state,  to- 
gether with  the  duties,  terms  of  office  and  salaries  of  those  employed  in 
its  service. 

In  1916,  as  already  noted,  the  law  authorizing  the  efficiency  and 
economy  commission  of  Massachusetts  was  repealed  and  the  .commission 
abolished.  Under  the  new  act  the  powers  of  the  commission  were  trans- 
ferred to  a  supervisor  of  administration,  who  was  also  given  added 
authority  under  this  act.  He  was  authorized  to  appoint  a  deputy  or 
deputies  with  the  consent  of  the  governor  and  council.  Under  this  pro- 
vision he  appointed  two  deputies  and  a  secretary. 

The  term  of  office  of  the  supervisor  of  administration  is  three  years 
and  his  salai-y  $5,000. 

The  supervisor  has  made  annual  reports  for  the  years  1916,  1917  and 
1918.  In  addition  to  these  reports  he  has  recently  issued  a  number  of 
special  reports  of  interest  and  value.  The  full  list  of  these  is  found 
in  the  typewritten  pamphet  prepared  for  the  use  of  the  Ohio  committee 
under  "State  Publications."     They  are  as  follows : 

Recommendations  relative  to  increases  of  salaries  together  with  an 
outline  of  bills  on  consolidation  of  departments,   1919. 


6l6  REl'ORT  OF   JOINT   LKGISLATIVE   COMMITTEE 

State  board  of  labor  and  industries. 

A  report  on  the  reorganization  of  tlie  state  board  of  labor  and 
industries. 

Consolidation  of  departments,  boards,  offices  and  institutions. 
1919. 

Supplementary  report  on  the  consolidation  of  departments 
according  to  the  plan  recommended  in  the  annual  report  for  the 
year  1918. 

Purchasing  and  distribution  of  office  furniture,  supplies  and 
equipment.     1919. 

The  recommendations  of  the  supervisor  for  the  establishment 
of  the  position  of  superintendent  of  buildings,  to  have  charge  of  the 
purchase  and  distribution  of  office  furniture,  supplies  and  equip- 
ment.   The  sergeant-at-arms  had  previously  done  all   this   purchasing. 

Consolidation  of  state  departments,  boards,  offices  and  institu- 
tions.    1919. 

The  second  supplementary  report  of  the  supervisor  of  admin- 
istration on  consolidation  of  departments. 

ConsoHdation    of    state    departments,   boards    and    institutions. 

The  third  supplementary  report  on  consolidation. 

An  investigation  of  the  compensation  and  working  conditions 
of  the  officials  and  employes  of  the  commonwealth  and  the  several 
counties  thereof.    1919. 

Conduct,  methods  and  practices  of  the  department  of  the  civil 
service  commission.     1919- 

This  report  is  accompanied  by  recommendations  for  the  organ- 
ization of  a  civil  service  commission  with  a  single  head. 

Report  of  the  special  committee  of  the  executive  council  on  the 
standardization  of  salaries  in  the  state  service.     1918. 

The  value  of  the  foregoing  reports  may  be  judged  from  the  follow- 
ing excerpts  from  the  report  of  the  .special  committee  of  the  executive 
council  on  the  standardization  of  salaries,  which  was  adopted  by  the 
council,  including  the  salaries  recommended  for  those  in  the  service 
of  the  state : 

"The  problems  of  salary  standardization  was  approached  by 
instituting  a  general  survey  of  state  positions,  to  determine  the 
number  of  vocations,  professions,  trades, or  occupations  ernbraced 
in  the  service,  and  also  to  secure  a  service  record  of  each  individual, 
from  which  an  all-embracing  classification  could  be  evolved. 

"The  committee  caused  to  be  sent  to  each  state  employee  in- 
cluded in  part  i  of  this  report  a  questionnaire  relative  to  his  par- 
ticular position, —  to  be  filled  out  by  him  personally  where  possible 
or  practicable.  The  heads  of  departments  were  requested  to  check 
these  sheets  carefully  and  return  them  to  the  supervisor  of  admin- 
istration. A  complete  history  or  picture  of  each  employee  from 
time  of  entrance  into  the  service  to  date  was  thus  secured,  as  fol- 
lows : 

I— Title 

2  —  Occupation   or  experience   prior  to   entrance  into   service. 


ON   ADMIXISTKATIVR  REORGAXIZATION  617 

3  —  Department,  bureau  or  division  in  which  duties  are  performed. 

4  —  Immediate  superior. 

5  —  Brief    description    of   scope   of    duties    and    responsibilities. 

6  —  A  record  of  the  history  in  the  state  service,  including  facts  in 

regard  to  entrance  ;  changes  in  titles  ;  transfers  ;  advancements  ; 
promotions ;  changes  in  duties ;  salary  rates ;  retirements ;  re- 
instatements ;  and  separations   from  the  service. 

7  —  Miscellaneous  facts. 

"After  these  questionnaires  had  been  returned  and  assorted,  repre- 
sentatives of  the  supervisor's  office  held  conferences  with  the  heads 
of  the  departments,  and  in  many  instances  with  employees  themselves, 
to  review  the  situation  and  to  eliminate  obscurity,  to  insure  accuracy  and 
obtain  valuable  suggestions.  A  separate  investigation  was  also  con- 
ducted into  the  scale  of  wages  and  salaries  paid  for  similar  work  by 
private  employers  —  the  whole  constituting  a  very  thorough  inquiry  to 
determine  the  worth  of  the  various  grades  of  work.  The  investigation 
showed  numerous  interesting  things ;  for  instance,  that  there  are  at 
present  ten  different  ways  of  entering  the  state  service,  namely : — 

1 .  By  appointment  from  the  governor. 

2.  By  appointment  from  the  governor  with  the  consent  of  the 
council. 

3.  By  appointment  from  the  departmental  head  alone. 

4.  By  appointment  of  the   departmental  head,  with  the  consent 
of  the  governor 

5.  By  appointment  of  the   departmental  head,  with  the   consent 
of  the  governor  and  council. 

6.  By  appointment  of  the  departmental  head,  with  the  approval 
of  the  civil  service  commission. 

7.  By  appointment  of  the  departmental  head,  with  the  consent 
of  the  governor  and  the  civil  service  commission. 

8.  By  appointment  of  the  departmental  head,  with  the  consent 
of  the  board  of  trustees. 

9.  By  appointment  of  the  departmental  head,  with  the  approval 
of  the  board  of  charity. 

10.      By  appointment  of  .the  departmental  head,  with  the  approval 
of  a  central  control  agency  and  the  governor  and  council." 

The  report  from  which  quotation  is  made  indicates  an  effort  in 
Massachusetts  to  prescribe  qualifications  for  appointees  to  the  various 
offices  and  positions  in  the  state  service.  In  some  instances  these  quali- 
fications seem  to  be  aside  from  those  required  by  the  civil  service,  but 
the  most  important  change  recommended  is  the  fixing  of  qualifications 
for  appointees  outside  of  the  civil  service  regulations.  An  attempt  has 
been  made  to  prescribe  qualifications  for  heads  of  departments,  as  well 
as  all  of  their  subordinates.  This  is  interesting  because  the  laws  of  the 
United  States  government  and  of  most  of  the  states  even  where  civil 
service  agencies  have  been  established,  prescribe  for  administrative  chiefs 
no  qualifications  of  fitness  to  discharge  duties  of  office.  It  is  true,  in 
many  instances,  that  political  qualifications  are  prescribed  to  insure 
minority  party  representation  on  certain  boards  and  commissions  and 
in  a   few   instances   special   qualifications   are    required   by   statute,   but 


6i8  REPORT  OF  JOINT  li-:gislati\e  committee 

generally  speaking',  the  assumption  seems  to  be,  even  where  the  civil 
service  system  has  been  introduced,  that  while  a  standard  of  qualifications 
should  be  fixed  for  subordinates  in  the  various  departments,  any  person 
can  fill  a  position  at  or  near  the  head  of  the  department,  if  he  can  get  it. 

The  special  committee  of  the  executive  council  of  Massachusetts 
seems  to  obsen^e  the  weak  logic  of  such  an  arrangement.  It  is  proposed 
to  improve  conditions  by  requiring  of  every  appointee  some  qualification 
of  fitness  to  discharge  the  duties  of  the  position  which  he  is  to  fill. 
On  this  subject  the  committee  of  the  executive  council  says : 

"With  the  exception  of  a  few  groups  of  employes,  little  or  no 
attention  has  been  given  the  matter  of  qualifications  at  entrance  to 
the  service.  This  acts  as  an  open  door  through  Avhich  the  un- 
qualified may  enter.  The  converse  is  likewise  true.  Persons  with 
professional  pride  are  not  over  anxious  to  accept  positions  that 
require  no  definite  standards  of  work  and  experience." 

There  will  be  general  agreement  with  these  observations  of  the 
special  committee.  It  must  be  admitted,  however,  that  in  actually  pre- 
scribed qualifications  the  supervisor  of  administration  has  in  many  in- 
stances been  limited  to  a  very  narrow  range.  The  executive  council  of 
Massachusetts  in  1918  approved  "General  rules  and  regulations  govern- 
ing entrance,  advancement  and  promotion  in  the  service  of  the  common- 
wealth of  Massachusetts." 

These  rules  and  regulations  require  that  any  board,  commission  or  of- 
ficial of  the  state  desiring  to  make  an  appointment  or  promotion,  to  fill 
a  vacancy  or  a  new  position  shall  notify  the  supervisor  of  administration 
and  furnish  him  with  certain  information  in  regard  to  the  position  to  be 
filled.  Upon  the  receipt  of  such  information  the  supervisor  shall  make 
an  investigation  regarding  the  need  of  the  position,  compliance  with  the 
qualification  required  by  law  and  the  ability  of  the  department  or  ofificer 
to  provide  for  the  position  out  of  the  appropriation  available.  If  the 
supervisor  approves  the  request  and  the  position  to  be  filled  is  subject  to 
the  civil  service  commission,  the  result  of  his  investigation  is  to  be  sent 
to  that  commission,  which  will  certify  eligibles  for  appointment.  If  the 
position  to  be  filled  is  not  subject  to  the  control  of  the  civil  service  com- 
mission, the  supervisor  of  administration  proceeds  to  fill  it  in  accordance 
with  the  rules  and  regulations  approved  by  the  executive  council. 

These  rules  and  regulations  provide  qualifications  for  employment 
in  the  administrative  branch  of  the  state  government.  The  qualifications 
in  some  instances  are  so  shadowy  and  vague  that  they  are  practicall\ 
non-existent.  For  instance,  the  specifications  open  with  the  naming  of 
1 1  officers  or  classes  of  officers  to  be  appointed  by  the  governor.  And 
here  is  the  statement  of  the  qualifications : 

"Incumbents  of  these  positions,  who  are  appointed  directly  by 
the  governor  of  the  commonwealth,  shall  have  such   qualifications 


ON  ADMINISTRATIVE  REORGANIZATION  619 

as  may  be  fixed  by  the  governor  and  approved  by  the  council,  or 
as  may  be  provided  by  statute." 

In  other  words,  to  the  governor  and  his  council  is  left  entirely  the 
matter  of  qualifications. 

In  many  positions,  however,  of  a  technical  or  educational  character 
the  qualifications  are  so  fully  and  definitely  specified  as  to  afford  an 
effective  safeguard  to  the  state's  service.  Take,  for  instance,  the  qualifi- 
cations of  the  librarian,  who  has  charge  of  organization  and  field  work 
among  the  public  libraries  of  the  state.  Here  are  the  qualifications  re- 
quired : 

"Not  less  than   six   years'   experience   as   secretary   of    a   free 

library  commission  or  at  least  six  years   of  experience  in  library 

organization  and  administration." 

Following  are  the  qualifications  required  of  the  librarian  in  charge 
of  work  with  aliens : 

"Not  less  than  six  years'  experience  in  library  work  or  educa- 
tional work  involving  some  library  experience,  at  least  four  of 
which  shall  be  in  work  with  the  foreign  speaking  alien  population." 

And  here  are  the  qualifications  prescribed  for  junior  assistant 
librarian : 

"A  certificate  of  graduation  from  a  library  school,  or  an  equiva- 
lent educational  training,  and,  in  addition  not  less  than  one  year  of 
experience  in  library  work  affording  appropriate  training  and  experi- 
ence in  the  duties  to  be  performed." 

The  qualifications  of  assistant  librarian  are  a  little  higher  than  those 
for  the  junior  assistant. 

All  of  these  qualifications  are  definitely  stated  and  afford  a  safe- 
guard on  the  whole  quite  as  satisfactory  as  could  be  provided  in  a  civil 
service  examination. 

The  report  from  which  quotation  has  been  made  continues : 

"The  following  existing  methods  of  creating  titles  for  positions 
were  developed : — 

1 .  By  designation  from  the  civil  list. 

2.  By  specific  reference  from  statutes  creating  the  positions. 

3.  By  department  heads. 

4.  By  direct  designation  of  department  head,  or  the  control  board, 
approved  in  all  instances  by  the  governor  and  council  and  also 
approved  by  the  civil  servace  commission. 

"Titles  should  be  reasonably  descriptive  of  duties  performed  and 
be  useful  for  purposes  of  payroll  audit,  office  management  and  con- 
trol. An  analysis  of  the  present  titles  for  positions  in  service  shows 
that  they  frequently  fail  to  serve  any  useful  purpose,  It  is  quite 
unusualto  find  that  a  title  is  such  as  to  signify  the  relative  importance 
of  the  position  in  terms  of  the  entire  service.    There  are  now  seven 


620  REPORT  OF  JOIXT  LEGISLATIVE   COMMITTEE 

hundred  titles  in  use,  —  one-half  of  which  at  least  are  so  non-descrip- 
tive as  to  be  almost  meaningless.  Large  numbers  of  positions  are 
mentioned  specilically  by  title  and  salary  rate  in  the  statutes,  some 
of  which  have  remained  unchanged  for  over  forty  years.  Though 
many  of  these  positions  are  paralleled  in  scope  and  responsibility  to 
positions  later  created  otherwise,  these  particular  employees  must 
continue  to  be  paid  in  accordance  with  the  terms  of  the  statute,  re- 
gardless of  the  present  value  of  w^ork  performed  or  with  respect  to 
the  compensation  allowed  for  these  other  similar  positions  subse- 
quently created.  For  instance,  an  employee  in  one  department  may 
receive  a  salary  of  $900,  absolutely  fixed  by  statute,  while  in  another 
department  for  the  same  work  an  employee  may  receive  $2,000,  the 
amount  being  fixed  solely  by  the  department  heads  in  the  latter  in- 
stance. 

"The  various  ways  of  creating  salary  rates  at  entrance  to  the 
service  were  found  to  include  the  following: — 

1 .  By  statute,  through  legislative  enactment. 

2.  By  appropriation  act  not  regulated  by  statute. 

3.  By  either  of  the  foregoing,  subject  to  the  approval  of  the  gov- 
ernor and  council." 

It  is  needless  to  say  that  documents  of  this  character,  indicating  the 
line  of  investigation  in  other  states  that  have  devoted  years  of  work 
and  considerable  sums  of  money  to  the  solution  of  consolidation  and 
standardization,  will  be  of  special  value  to  any  committee  taking  up 
similar  work. 

From  the  report  on  the  state  board  of  labor  and  industries  by  the 
supervisor  of  administration,  it  appears  that  the  recent  constitutional 
convention  made  specific  provisions  for  the  limitation  in  the  number  of 
state  administrative   agencies.     The  supervisor   says: 

"The  resolve  under  which  this  investigation  was  made  requires 
a  report  ^s  'to  what  extent  and  in  what  respects  the  board  should 
be  organized.'  A  report  on  this  question  alone  would  not  meet 
the  requirements  of  the  present  situation  on  account  of  the  adoption 
of  an  amendment  to  the  constitution  requiring  the  consolidation  of 
state  boards,  commissions  and  authorities  into  not  more  than  twenty 
departments  by  January  i,  192 1.  This  office  has  therefore  con- 
sidered what  other  state  authorities  could  advantageously  be  com- 
bined with  the  state  board  of  labor  and  industries  into  a  single 
industrial  department." 

As  already  stated,  the  progress  toward  consolidation  and  simplifi- 
cation of  the  executive  branch  of  the  government  in  Massachusetts  has 
extended  over  a  number  of  years  and  met  with  a  number  of  obstacles 
A  writer,  in  an  interesting  survey  of  the  movement  in  this  state,  pub- 
lished in  1917,  declares  that  results  in  actual  legislation  at  that  time  were 
so  unimportant  as  to  call  for  no  special  consideration.  From  the  fore- 
going it  is  seen,  however,  that  the  work  of  the  commission  on  cfificiency 
nnd  economy  and  its  successor,  the  supervisor  of  administration,  has 
tiinded  definitely  to  a  reorganization  authorized  and  made  mandatory  by  a 


ON  ADMINISTRATIVE  REORGANIZATION 


621 


recent  constitutional  provision.  The  movement  in  Massachusetts  has 
at  no  time  been  abandoned  but  has  steadily  progressed  to  the  results 
sought  by  its  friends  from  the  beginning. 

The  general  court  of  Massachusetts  at  its  regular  session  in  1919 
complied  with  the  provision  of  the  new  constitution  requiring  the  ad- 
ministrative branch  of  the  state  government  to  be  organized  in  not  to 
exceed  twenty  different  departments. 

The  act  making  such  reorganization  was  approved  July  23,  1919. 
It  has  very  recently  been  published.  That  part  of  section  i  of  this  act 
which  authorizes  the  department  reads  as  follows: 

"The  executive  and  administrative  functions  of  the  common- 
wealth, except  such  as  pertain  to  the  government  and  the  council, 
and  such  as  are  exercised  and  performed  by  officers  serving  directly 
under  the  governor  or  the  governor  and  council,  shall  hereafter  be 
exercised  and  performed  by  the  departments  of  the  secrtary  of 
the  commonwealth,  the  treasurer  and  receiver  general,  the  auditor  of 
the  commonwealth  and  the  attorney-general,  and  by  the  following 
new  departments  hereby  established,  namely: 

The  department  of  agriculture. 

The  department  of  conservation. 

The  department  of  banking  and  insurance. 

The   departm.ent  of  corporations  and  taxation. 

The  department  of  education. 

The  department  of  civil  service  and  registration. 

The  department  of  industrial  accidents. 

The  department  of  labor  and  industries. 

The  department  of  mental  diseases. 

The    department   of   correction. 

The  department  of  public  welfare. 

The  department  of  public  health. 

The  department  of  public  safety. 

The  department  of  public  works. 

The  department  of  public  utilities. 

A   metropolitan  district  commission  is  also  hereby  established 

as  hereinafter  provided  and  the  provisions  of  part  i  of  this 

act  shall  apply  to  said  commission." 

The  work  of  the  supervisor  of  administration,  the  successor  of  the 
efficiency  and  economy  commission,  seems  to  have  been  satisfactory  to 
the  general  court.     Section  15  of  the  reorganization  act  reads  as  follows: 

"The  office  of  the  supervisor  of  administration  existing  under 
authority  of  chapter  296  of  the  general  act  of  1916,  and  acts  in 
amendments  thereof  and  in  addition  thereto,  shall  continue  to  be 
under  the  governor  and  council,  as  now  provided  by  law." 

As  already  stated,  the  general  court  has  seemed  reluctant  to  take 
up  and  embody  in  law  a  code  for  the  reorganization  of  the  state  govern- 
ment of  Massachusetts.     The  recent  constitutional  convention  in  that 


022  KlU'URT   OF   JOINT  LKGISLATIVE   COMMITTEE 

State,  however,  adopted  the  provision  requiring  the  consolidation  of  state 
government  and  the  people  of  the  commonw^ealth  ratified  this  action. 

The  general  court  enacted  a  law  to  carry  out  this  provision  of  the 
constitution,  but  in  so  doing  disturbed  as  little  as  possible  the  system 
previously  enforced  in  that  state.  The  commissions,  boards  and  of^cers 
are  grouped  under  the  different  departments  named  in  the  first  section 
of  the  act,  but  within  their  respective  groups  remain  much  as  they 
were  before  the  change  was  effected.  To  illustrate  how  this  principle  has 
been  carried  out  quotation  is  made  here  in  full  of  those  sections  that 
create  the  department  of  banking  and  insurance: 

"department  of  banking  and  insurance 

"Section  45.  The  office  of  bank  commissioner,  existing  under 
authority  of  chapter  two  hundred  and  four  of  the  acts  of  nineteen 
hundred  and  six,  and  chapter  five  hundred  and  ninety  of  the  acts 
of  nineteen  hundred  and  eight,  the  office  of  supervisor  of  loan 
agencies,  existing  under  authority  of  chapter  seven  hundred  and 
twenty-seven  of  the  acts  of  nineteen  hundred  and  eleven,  and  the 
office  of  the  insurance  commissioner,  existing  under  authority  of 
chapter  five  hundred  and  seventy-six  of  the  acts  of  nineteen  hundred 
and  seven,  are  hereby  abolished.  All  the  rights,  powers,  duties  and 
obligations  of  said  offices  are  hereby  transferred  to  and  shall  here- 
after be  exercised  and  performed  by  the  department  of  banking  and 
insurance  established  by  this  act,  which  shall  be  the  lawful  suc- 
cessor of  said  offices. 

"Section  46.  The  department  of  banking  and  insurance  shall 
be  organized  in  three  divisions,  —  namely,  a  division  of  banks  and 
loan  agencies,  a  division  of  insurance,  and  a  division  of  savings  bank 
life  insurance.  Each  division  shall  be  in  charge  of  a  commissioner, 
who  shall  be  known,  respectively,  as  the  commissioner  of  banks,  the 
commissioner  of  insurance,  and  the  commissioner  of  savings  bank 
life   insurance. 

"The  division  of  banks  and  loan  agencies  shall  include  the 
functions  heretofore  exercised  by  the  bank  commissioner  and  the 
supervisor  of  loan  agencies.  The  division  of  insurance  shall  include 
the  functions  heretofore  exercised  by  the  insurance  commissioner. 
The  division  of  savings  bank  life  insurance  shall  consist  of  the  body 
corporate  known  as  the  general  insurance  guaranty  fund  as  now 
organized  and  existing  under  authority  of  chapter  five  hundred  and 
sixty-one  of  the  acts  of  nineteen  hundred  and  seven,  and  acts  in 
amendment  thereof  and  in  addition  thereto,  and  the  board  of 
trustees  of  said  corporation  shall  continue  to  exercise  its  functions 
as  heretofore,  except  as  is  otherwise  hereinafter  provided. 

"The  commissioners  of  said  divisions  shall  act  as  a  board  in 
all  matters  concerning  the  department  as  a  whole. 

"Section  47.  The  board  of  bank  incorporation,  so-called,  ex- 
isting under  authority  of  chapter  two  hundred  and  four  of  the 
acts  of  nineteen  hundred  and  six  and  section  four  of  chapter  five 
hundred  and  ninety  of  the  acts  of  nineteen  hundred  and  eight,  is 
hereby  placed  and  shall  hereafter  serve  in  the  department  of  banking 
and  insurance.    The  said  board  shall  hereafter  consist  of  the  treas- 


ON   ADMINISTRATIVE  REORGANIZATION  623 

urer  and  receiver  general,  the  commissioner  of  banks,  and  the  com- 
missioner of  corporations  and  taxations  as  estabHshed  by  this  act. 
The  board  shall  continue  to  exercise  its  functions  as  heretofore,  but 
shall  be  considered  a  board  of  the  division  of  banks  and  loan 
agencies. 

"Section  48.  The  board  of  appeal  on  fire  insurance  rates, 
existing  under  authority  of  chapter  four  hundred  and  ninety-three 
of  the  acts  of  nineteen  hundred  and  eleven,  is  hereby  placed  and 
shall  hereafter  serve  in  the  department  of  banking  and  insurance, 
and  shall  continue  to  exercise  its  functions  as  heretofore,  but  shall 
be  considered  a  board  of  the  division  of  insurance. 

"Section  49.  The  commissioner  of  banks  shall  exercise  the 
functions  of  the  bank  commissioner  and  of  the  supervisor  of  loan 
agencies,  as  now  provided  by  lav^.  He  shall  also  be  a  member  of 
the  board  of  bank  incorporation,  as  heretofore  provided.  He  shall 
be  appointed  by  the  governor,  with  the  advice  and  consent  of  the 
council.  The  first  appointment  shall  be  for  the  term  of  one,  two 
or  three  years,  as  the  governor  may  determine.  Thereafter  the 
governor  shall  appoint  the  commissioner  for  the  term  of  three  years, 
shall  fill  any  vacancy  for  the  unexpired  term,  and  may,  with  the 
consent  of  the  council,  remove  the  commissioner.  He  shall  possess 
the  qualifications  and  give  the  bond  required  of  the  bank  com- 
missioner under  chapter  five  hundred  and  ninety  of  the  acts  of 
nineteen  hundred  and  eight,  and  shall  receive  such  annual  salary, 
not  exceeding  five  thousand  dollars,  as  the  governor  and  council 
may  determine.  The  commissioner  may,  with  the  approval  of  the 
governor  and  council,  appoint  and  remove  a  deputy  as  supervisor 
of  loan  agencies,  and  may,  subject  to  the  civil  service  laws  and 
rules,  where  they  apply,  appoint  and  remove  such  clerical  and  other 
assistants  as  the  work  of  the  division  may  require  and,  subject  to 
the  provisions  of  chapter  two  hundred  and  twenty-eight  of  the 
general  acts  of  nineteen  hundred  and  eighteen,  and  rules  and  regula- 
tions made  thereunder,  and  to  the  approval  of  the  governor  and 
council,  where  it  is  required  by  law,  fix  the  compensation  of  the 
said  persons. 

"Section  50.  The  commissioner  of  insurance  shall  exercise 
and  perform  the  functions  of  the  insurance  commissioner  as  now 
provided  by  law,  and  he,  or  a  deputy  designated  by  him,  shall  be 
a  member  of  the  board  of  appeal  on  fire  insurance  rates  under 
chapter  four  hundred  and  ninety-three  of  the  acts  of  nineteen  hun- 
dred and  eleven.  He  shall  be  appointed  by  the  governor,  with  the 
advice  and  consent  of  the  council.  The  first  appointment  shall 
be  for  the  term  of  one,  two  or  three  years,  as  the  governor  may 
determine.  Thereafter  the  governor  shall  appoint  the  commissioner 
for  the  term  of  three  years,  shall  fill  any  vacancy  for  the  unexpired 
term,  and  may,  with  the  consent  of  the  council,  remove  the  com- 
missioner. He  shall  possess  the  qualifications  and  give  the  bond 
required  of  tlie  insurance  commissioner  under  chapter  one  hundred 
and  eighteen  of  the  revised  laws  and  chapter  five  hundred  and 
seventy-six  of  the  acts  of  nineteen  hundred  and  seven,  and  shall 
receive  such  annual  salary,  not  exceeding  five  thousand  dollars,  as 
the  governor  and  council  may  determine.  The  commissioner  may 
appoint  and  remove,  with  the  approval  of  the  governor  and  council, 
a  first  deputy,  who  shall  discharge  the  duties  of  the  commissioner 


624  REPORT  OF   JOINT  LEGISLATRE   COMMITTEE 

during  has  absence  or  disability,  and  such  other  duties  as  may  be 
prescribed  by  the  commissioner,  an  actuary  and  a  chief  examiner, 
and,  subject  to  the  civil  service  laws  and  rules  where  they  apply, 
may  appoint  and  remove  such  clerical  and  other  assistance  as  the 
work  of  the  division  may  require,  and  subject  to  the  provisions  of 
chapter  two  hundred  and  twenty-eight  of  the  general  acts  of  nine- 
teen hundred  and  eighteen,  and  the  rules  and  regulations  made 
thereunder,  and  to  the  approval  of  the  governor  and  council,  where 
that  is  required  by  law,  may  fix  the  compensation  of  such  persons. 

"Section  51.  The  commissioner  of  savings  bank  life  insurance 
shall  be  one  of  the  board  of  trustees  of  the  corporation  known  as 
the  general  insurance  guaranty  fund,  designated  by  the  governor. 
His  term  shall  be  that  of  his  appointment  as  trustee.  He  shall  act 
as  president  of  the  board  of  trustees  of  said  corporation,  and  shall 
have  general  supervision  and  control  of  the  work  of  the  division: 
proz'ided,  that  the  trustees  may  elect  a  vice  president  to  act  as 
president  of  the  board  in  the  absence  or  disability  of  the  commis- 
sioner." 

By  reference  to  the  concluding  part  of  Section  46,  above  quoted, 
it  is  seen  that  the  commissioners  of  the  divisions  created  exercise  in  their 
respective  divisions  the  same  functions  that  they  exercised  previously 
in  the  same  governmental  agencies  and  in  addition  "act  as  a  board  in 
all  matters  concerning  the  department  as  a  whole." 

It  seems  that  the  general  court  made  a  minimum  of  changes  in  order 
to  comply  with  the  provision  of  the  new  constitution  requiring  the 
organization  of  the  state  government  in  not  to  exceed  twenty  depart- 
ments. 

To  what  extent  the  Massachusetts  code  will  affect  the  work  of  the 
civil  service  commission  in  that  state  can  not  be  clearly  learned  from  the 
document  itself.     Sec.  9  of  the  code  is  as  follows: 

"In  all  cases  where  the  executive  and  administrative  head  of  the 
department  is  vested  with  authority  to  establish  within  his  depart- 
ment divisions,  the  establishment  of  such  divisions  shall  be  subject 
to  the  approval  of  the  governor  and  council,  except  in  cases  where 
divisions  are  specifically  provided  for  in  this  act." 

Section  11  contains  two  clauses  that  .seem  very  slightly  related. 
The  first  of  these  provides  that  all  salaried  persons  appointed  by  the 
governor  with  the  advice  and  consent  of  the  council  may  be  required  by 
the  governor,  with  consent  of  the  council,  to  give  their  whole  time  to  the 
duties  of  the  office.  This  really  means  little  or  nothing.  The  other  clause 
is  significant.     Here  it  is: 

"The  heads  of  divisions  of  departments  established  by  or  under 
authority  of  this  act  shall  be  exempt  from  the  civil  service  law  and 
the  rules  and  regulations  made  thereunder." 

This  means,  of  course,  not  only  that  the  heads  of  all  divisions  pro- 
vided for  in  the  act  itself,  but  that  the  heads  of  all  divisions  hereafter 


ON  ADMINISTRATIVE  REORGANIZATION  625 

created  by  the  governor  and  heads  of  departments  under  this  act  shall 
be  exempt  from  civil  service  requirements.  While  this  provision  would 
seem  to  curtail  the  authority  of  the  civil  service  commission  and  exempt 
from  the  civil  service  rules  and  regulations  subordinate  positions  in  the 
different  departments,  amends  had  been  made  to  some  extent  by  law? 
previously  enacted,  which  safeguard  many  of  these  positions  by  prescrib- 
ing a  standard  of  qualifications  for  those  appointed  to  them. 

There  are  some  other  interesting  principles  running  through  the  new 
code,  but  as  they  do  not  directly  concern  matters  of  reorganization  in  the 
interest  of  efficiency  and  economy  there  is  no  occasion  to  review  them 
here. 

MINNESOTA 

The  efificiency  and  economy  commission  of  Minnesota  was  created 
in  October,  1913.  It  consisted  of  thirty  men  chosen  by  the  governor  and 
serving  without  pay.  The  funds  necessary  for  general  expenses  were 
raised  by  private  subscriptions.  The  commission  was  authorized  to  con- 
fer with  public  officials  and  private  citizens  in  devising  plans  for  pro- 
moting efficiency  and  economy  in  the  administration  of  the  state  gov- 
ernment. 

A  preliminary  report  was  made  to  the  governor  under  date  of  May 
25,  1914.    Following  are  the  main  features  of  the  plan  proposed : 

I.      Reorganization  of  the  executive  service  under  the  following 
heads: 

1 .  General  administration  of  finance 

2.  Public  domain 

3.  Public  welfare 

a.  Institutions 

b.  Health 

4.  Education 

5.  Labor  and  commerce 

6.  Agriculture 

II.     The  merit  system  in  the  civil  service 
III.     The  budget  system  of  appropriating  money 

The  final  report  of  the  commission  was  made  to  the  governor  in 
November,  1914.  This  elaborates  the  main  features  of  the  preliminary 
report.  It  contains  "the  proposed  bill  for  reorganizing  civil  administra- 
tion of  the  state  of  Minnesota".  Following  the  bill  are  twenty-two 
pages  of  explanatory  notes.  A  carefully  prepared  index  concludes  the 
report.  Much  praise  has  been  given  the  commission  for  its  survey  and 
recommendations,  but  the  bill  which  it  proposed  has  not  been  enacted  into 
law. 

On  April  21,  191 5  a  resolution  was  adopted  by  the  general  assembly 
of  Minnesota  creating  a  commission  on  reorganization  of  civil  adminis- 
tration in  that  state.  This  commisison  consisted  of  three  members 
40 


626  REPORT  OF  JOINT  LEGISLATIN'E   COMMITTEE 

appointed  by  the  governor,  four  by  the  lieutenant  governor  and  four  by 
the  speaker  of  the  house.  All  appointments  were  made  from  the  member- 
ship of  the  legislature.  The  report  of  this  commission  appears  in  the 
appendix  of  the  inaugural  message  of  Governor  Burnquist  to  the  legisla- 
ture hi  19 1 7.  It  follows  in  general  the  recommendations  of  the  efficiency 
and  economy  commission  which  preceded  it,  but  it  does  not  go  so  far  in 
the  recommendation  of  changes.  The  commission  makes  the  additional 
recommendation  that  a  constitutional  amendment  be  submitted  to  the 
people  limiting  the  membership  of  the  state  senate  to  fifty  and  of  the 
house  of  representatives  to  not  to  exceed  one  hundred. 

In  Minnesota  the  work  of  the  two  commissions  has  not  led  to  im- 
portant legislation.  The  enactment,  of  a  law  providing  for  a  state 
budget,  however,  was  perhaps  due  to  some  extent  to  their  recommenda- 
tions. 

NEBRASKA 

On  April  16,  1913,  the  general  assembly  of  Nebraska  adopted  a 
resolution  providing  for  the  appointment  of  a  joint  committee  to  consider 
the  reform  of  legislative  procedure  and  the  budget.  This  committee  con- 
sisted of  three  members  of  the  senate  and  three  members  of  the  house. 
It  was  specifically  directed  to  make  a  careful  study  of  the  methods  of 
legislative  procedure  in  other  states  and  countries,  including  the  prepara- 
tion of  the  budget,  and  to  formulate  a  report  and  recommendations  for 
the  state  of  Nebraska.  A  small  appropriation  of  $500  was  made  for  the 
expenses  of  the  committee. 

The  report  of  the  committee  bears  date  of  May  15,  1915.  It  is 
brief  and  contains  the  following  recommendations : 

For  immediate  action : 

1 .  Bills.  Form  to  be  standardized ;  a  bill  drafting  division  to 
be  created. 

2.  Legislative   publications.     Journals    and   calendars    should 
be  printed. 

3.  Committees.     Reduction  in  size  and  number,  schedule  of 
meetings,  record  of  votes. 

4.  Employees.     Reduction  in  number,  election  of  chief. 

For  future  action : 

1 .  Constitutional  amendment  for  unicameral  legislature 

2.  Civil  service  reform. 

3.  Budget  to  be  prepared  by  the  governor. 

4.  Consolidation  of  offices. 

5.  Efficiency  survey. 

The  efficiency  survey  recommended  in  this  report  does  not  appear  to 
have  been  made  by  the  state,  but  at  least  one  committee  in  1914  and  two 
governors  at  different  dates,  seem  to  have  recommended  consolidation 
of  administrative  agencies.     In  1918  the  republican  party  of  Nebraska 


ON  ADMINISTRATIVE  REORGANIZATION  627 

declared  in  favor  of  a  reorganization  of  the  state  government  and  elected 
a  governor  pledged  to  this  change.  The  civil  administrative  code  passed 
by  the  legislature  of  Nebraska,  approved  April  19,  1919,  is  a  voluminous 
document  and  including  index  covers  461  pages.  It  is  much  more  ex- 
tensive than  the  Illinois  code  and  seems  to  include  a  revision  of  all  the 
laws  under  which  the  reorganized  government  of  Nebraska  is  to  operate. 
The  general  provisions  of  the  code  are  an  index  to  the  character  of  the 
document  and  are  sufficiently  brief  to  be  presented  in  this  study.  These 
provisions  are  as  follows  : 

"Be  it  enacted  by  the  people  of  the  state  of  Nebraska : 
Section  i.  Civil  administration  vested  i>/  governor.  The  civil  ad- 
ministration of  the  laws  of  the  state  is  hereby  vested  in  the  governor. 
For  the  purpose  of  aiding  the  governor  in  the  execution  and  administra- 
tion of  the  law,  the  executive  administration  work  shall  be  divided  into 
the  several  departments  enumerated  in  Section  2  of  this  article. 

"Sec.  2.  Executive  and  administrative  departments.  There  are 
hereby  created  and  established  the  following  departments  of  the  state 
government. 

The  department  of  finance ; 

The  departemnt  of  agriculture ; 

The  department  of  labor; 

The  department  of  trade  and  commerce ; 

The  department  of  public  welfare; 

The  department  of  public  works. 

"Sec.  3.  Departmental  secretaries.  To  aid  the  governor  in  carrying 
out  the  constitutional  duties,  vested  in  him  as  the  supreme  executive, 
each  department  shall  have  a  departmental  officer  who  shall  be  known  as 
'secretary',  who  shall,  subject  to  the  provisions  of  this  act,  and  under 
the  general  direction  of  the  governor,  execute  the  power  and  discharge 
the  duties  vested  by  law  in  his  respective  department.  Such  officers  shall 
be  designated  as  follows : 

The  secretary  of  finance,  for  the  department  of  finance ; 

The  secretary  of  agriculture,  for  the  department  of  agriculture; 

The  secretary  of  labor,  for  the  department  of  labor; 

The  secretary  of  trade  and  commerce,  for  the  department  of 
trade  and  commerce ; 

The  secretary  of  public  welfare,  for  the  department  of  public 
welfare ; 

The  secretary  of  public  works,  for  the  department  of  public 
works. 

"Sec.  4.  Salaries  and  secretaries.  The  secretaries  of  the  respective 
departments  created  by  this  article  shall  receive  annual  salaries  in  monthly 
or  yearly  periods  as  follows  : 

The  secretary  of  finance  shall  receive  $5,000; 

The  secretary  of  agriculture  shall  receive  $5,000; 

The  secretary  of  labor  shall  receive  $5,000; 

The  secretary  of  trade  and  commerce  shall  receive  $5,000; 

The  secretary  of  public  welfare  shall  receive  $5,000; 

The  secretary  of  public  works  shall  receive  $5,000. 


628  REroRT  OF  JOINT  li-:gislative  committee 

"Sec.  5.  Assistants  —  appointed  —  salaries  —  tenns,  etc.  The  gov- 
ernor shall,  in  each  department,  have  power  to  appoint  such  deputies, 
assistants,  employees  and  clerical  help  as  shall  be  necessary  or  essential  to 
the  economical  but  efficient  and  proper  enforcement  and  administration 
of  the  laws  of  the  state,  and  shall  at  the  same  time  fix  the  salaries  of 
such  appointees  and  prescribe  their  duties.  The  governor  shall  also  have 
power  to  discontinue  the  service  of  any  such  secretary  or  employee  when, 
in  his  judgment,  the  same  is  not  longer  necessary.  Such  appointee  may 
be  required  to  serve  in  one  or  more  departments  and  may  be  transferred 
from  one  department  to  another  from  time  to  time  as  efficient  but  eco- 
nomical administration  shall  require.  The  governor  shall  confer  with  the 
secretaries  of  the  several  departments  and  the  secretaries  shall  make  rec- 
ommendations to  the  governor  from  time  to  time  relative  to  appoint- 
ments, services,  salaries  and  duties  of  the  appointees  for  their  re- 
spective departments.  In  providing  for  deputies,  assistants,  employees 
or  clerical  help,  the  total  expenditures  for  the  biennium  shall  not  exceed 
the  appropriation  made  by  the  legislature  for  said  departments. 

"Sec.  6.  Secretaries  and  appointees  to  devote  their  entire  time  to 
office.  Each  secretary,  and  each  appointee  in  each  department,  shall 
devote  his  entire  time  to  the  duties  of  his  office  and  shall  hold  no  other 
office  or  position  of  profit.  No  appointee  in  any  of  the  departments 
shall  be  a  relative  of  any  of  the  secretaries  of  departments  created  by  this 
act. 

"Sec.  7.  Secretaries  —  hoiu  appointed.  Each  secretary  of  each  de- 
partment created  by  this  act  shall  be  appointed  by  the  governor,  by  and 
with  the  advice  and  consent  of  the  senate.  In  any  case  of  vacancy  in 
such  offices  during  the  recess  of  the  senate,  the  governor  shall  make  a 
temporary  appointment  until  the  next  meeting  of  the  senate,  when  he 
shall  nominate  some  person  to  fill  such  office ;  and  any  person  so  nom- 
inated who  is  confirmed  by  the  senate,  shall  hold  his  office  during  the 
remainder  of  the  term  and  until  his  successor  shall  be  appointed  and 
qualified.  If  the  senate  is  not  in  session  at  the  time  this  act  takes  effect 
the  governor  shall  make  a  temporary  appointment  as  in  case  of  a  vacancy. 

"Sec.  8.  Same  —  terjii  of  office.  Each  secretary  whose  office  is 
created  by  this  act  shall  hold  office  for  a  term  of  two  years  from  the 
first  Thursday  after  the  first  Monday  in  January  next  after  the  election 
of  the  governor  and  until  his  successor  is  appointed  and  qualified  unless 
sooner  removed  by  the  governor. 

"Sec.  9.  Same  —  oath  of  office.  Each  secretary  and  assistant  in 
each  department  created  by  this  act  shall,  before  entering  upon  the  duties 
of  his  office,  subscribe  and  take  the  constitutional  oath  of  office,  which 
shall  be  filed  in  the  office  of  the  secretary  of  state. 

"Sec.  10.  Same  —  bond.  Each  secretary,  deputy  and  assistant  in 
each  departnient  created  by  this  act  shall,  before  entering  upon  the  dis- 
charge of  the  duties  of  his  office,  give  bond,  with  security  to  be  approved 
by  the  governor,  not  less  in  any  case  than  ten  thousand  dollars,  condi- 
tioned for  the  faithful  performance  of  his  duties,  which  bond  shall  be 
filed  in  the  office  of  the  secretary  of  state. 

"Sec.  II.  Secretary  makes  rules  and  rer/ulations  for  departnient. 
The  secretary  of  each  department  is  empowered  to  prescribe  regulations, 
not  inconsistent  with  law.  for  the  government  of  his  department,  the  con- 
duct of  its  employees  and  clerks,  the  distribution  and  performance  of  its 
business,  and  the  custody,  use  and  preservation  of  the  records,  papers, 
books,  documents  and  property  pertaining  thereto. 


ON  ADMINISTRATIVK  REORGANIZATION  629 

"Sec.  12.  Department  offices — branches.  Each  department  shall 
maintain  a  central  office  in  the  capital  at  Lincoln,  Nebraska,  in  rooms 
provided  therefor.  The  secretary  of  each  department  may,  in  his  discre- 
tion and  with  the  approval  of  the  governor,  establish  and  maintain,  at 
places  other  than  the  seat  of  government,  branch  offices  for  the  conduct 
of  any  one  or  more  functions  of  his  department. 

"Sec.  13.  Department  offices  —  zvhen  open  and  close.  Each  depart- 
ment shall  be  open  for  the  transaction  of  business  at  least  from  eight 
o'clock  in  the  morning  until  five  in  the  evening  of  each  day  except  Sun- 
days and  days  declared  by  statutory  enactment  or  proclamation  of  presi- 
dent or  governor  to  be  holidays. 

"Sec.  14.  Official  seal  of  department.  Each  department  shall  adopt 
an  official  seal. 

"Sec.  15.  Hours  of  labor.  All  secretaries,  deputies,  assistants  and 
employees  in  the  several  departments  shall  render  not  less  than  eight 
hours  of  labor  each  day,  Saturday  afternoon,  Sundays  and  days  declared 
by  statutory  enactment  or  proclamation  of  the  president  or  governor  to 
be  holidays  excepted. 

"Sec.  16.  Leaves  of  absence.  Each  secretary  and  appointee  in  the 
several  departments  shall  be  entitled  during  each  calendar  year  to  four- 
teen davs  leave  of  absence  with  full  pay.  In  special  and  meritorious 
cases  where  to  limit  the  annual  leav^  to  fourteen  days  in  any  one  cal- 
endar year  would  work  peculiar  hardship,  it  may,  in  the  discretion  of  the 
governor,  be  extended. 

"Sec.  17.  Payment  for  extra  services  —  reports.  No  secretary  or 
employee  in  the  several  departments,  employed  at  a  fixed  compensation, 
shall  be  paid  for  extra  services,  unless  expressly  authorized  by  law. 
Each  secretary  of  the  department  shall  annually,  on  or  before  the  first 
day  of  December,  and  at  such  other  times  as  the  governor  may  require, 
report  in  writing  to  the  governor  concerning  the  condition,  management, 
and  financial  transactions  of  his  department. 

"Sec.  18.  Co-ordination  among  departments.  The  secretaries  of 
departments  "shall  devise  a  practical  and  working  basis  for  co-operation 
and  co-ordination  of  work,  eliminating  duplication  and  overlapping 
functions.  They  shall,  so  far  as  practicable,  co-operate  with  each  other 
in  the  employment  of  help  and  the  use  of  quarters  and  equipment. 

Sec.  19.  Receipts  by  departments  —  paid  to  the  state  treasury.  The 
gross  amount  of  money  received  by  every  department,  from  whatever 
source,  belonging  to  or  for  the  use  of  the  state,  shall  be  paid  into  the 
state  treasury,  without  delay,  not  later  in  any  event  than  ten  days  after 
the  receipt  of  the  same,  without  any  deduction  on  account  of  salaries, 
fees,  costs,  charges,  expenses  or  claims  of  any  description  whatever.  No 
money  belonging  to  or  for  the  use  of  the  state  shall  be  expended  or  ap- 
plied by  any  department  except  in  consequence  of  an  appropriation  made 
by  law  and  upon  the  warrant  of  the  auditor  of  public  accounts. 

"Sec.  20.  Supplies — hozv  purchased.  Supplies  for  the  several  de- 
partments, except  in  cases  of  emergency  and  in  case  of  perishable  goods, 
shall  be  purchased  in  large  quantities  and  contracts  therefor  shall  be  let 
to  the  lowest  responsible  bidder.  Advertisements  for  bids  for  furnishing 
such  supplies  shall  be  published  for  at  least  three  days  in  one  or  more 
English  language  newspapers,  published  in  each  of  the  five  largest  cities 
of  the  state  determined  by  the  then  last  preceding  Federal  census,  and, 
also  in  one  secular  English  language  newspaper,  selected  by  the  depart- 
ment of  finance,  by  competitive  bidding  in  the  same  manner  as  it  is  herein 


630  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

provided  other  contracts  may  be  let,  and  designated  as  an  'official  news- 
paper', which  newspaper  so  selected  shall  continue  to  be  the  official  news- 
paper for  a  period  of  one  year  from  the  time  of  its  selection.  The  pro- 
posals shall  be  -publicly  opened  on  the  day  and  at  the  hour  and  place 
mentioned  in  the  advertisement  and  any  and  all  bids  may  be  rejected 
and  when  rejected  a  readvertisement  shall  be  made  in  the  manner  above 
provided ;  providing  that  no  specification  prepared  for  proposals  to  bid 
as  herein  provided  shall  call  for  private  brands  or  particular  manu- 
facture. 

"Sec.  21.  Foivers  of  departments  —  carry  reciprocal  duties. 
Whenever  in  this  act  power  is  vested  in  a  department  to  inspect,  examine, 
secure  data  or  information,  or  to  procure  assistance  from  another  de- 
partment, a  duty  is  hereby  empowered  upon  the  department  of  which 
demand  is  made,  to  make  such  power  effective. 

"Sec.  22.  Powers  —  duties  —  rights,  documents  and  property  of 
existing  offices  to  he  transferred  to  department.  Whenever  rights, 
powers  and  duties,  which  have  heretofore  been  vested  in  or  exercised 
by  any  officer,  board,  commission,  institution  or  department,  or  any 
deputy,  inspector  or  subordinate  officer  thereof,  are,  by  this  act,  trans- 
ferred, either  in  whole  or  in  part,  to  or  vested  in  a  department  created 
by  this  act,  such  rights,  powers  and  duties  shall  be  vested  in,  and  shall  be 
exercised  by,  the  department  to  which  the  same  are  hereby  transferred, 
and  not  otherwise,  and  every  act  done  in  the  exercise  of  such  rights, 
powers  and  duties  shall  have  the  same  legal  effect  as  if  done  by  the  former 
officer,  board,  commission,  institution  or  department,  or  any  deputy, 
inspector  or  subordinate  officer  thereof.  All  books,  records,  papers,  docu- 
ments, property,  real  and  personal,  unexpended  appropriations  and  pend- 
ing business  in  any  way  pertaining  to  the  rights,  powers  and  duties  so 
transferred  to  or  vested  in  a  department  created  by  this  act,  shall  be 
delivered  and  transferred  to  the  department  succeeding  to  such  rights, 
powers  and  duties. 

"Sec.  23.  Reports  —  notices  —  papers  —  documents  —  to  he  given 
and  served  upon  department  heads  —  saving  clause.  Whenever  reports 
or  notices  are  now  required  to  be  made  or  given,  or  papers  or  docu- 
ments furnished  or  served  by  any  person  to  or  upon  any  officer,  board, 
cornmission,  or  institution  or  deputy,  inspector  or  subordinate  thereof. 
This  act  shall  not  affect  any  act  done,  ratified  or  confirmed,  or  any  right 
accrued  or  established,  or  any  action  or  proceeding  had  or  commenced  in 
a  civil  or  criminal  cause  before  this  act  takes  effect;  but  such  actions  or 
proceedings  may  be  prosecuted  and  continued  by  the  department  having 
jurisdiction,  under  this  act.  of  the  subject  matter  to  which  litigation 
or  proceeding  pertains. 

"Sec.  24.  Investigations  —  power  to  administer  oath,  summon  and 
compel  the  attendance  of  zvitnesses.  Each  department  created  by  this  act 
shall  have  power  through  its  secretary,  any  deputy  or  assistant  or  em- 
ployee, when  authorized  by  the  secretary,  to  make  'a  thorough  investiga- 
tion into  all  the  books,  papers  and  affairs  of  any  person,  firm  or  cor- 
poration when  in  the  judgment  of  such  department  such  examination  is 
necessary  to  the  proper  performance  of  its  duties  and  the  efficient  en- 
forcement of  the  laws,  within  the  purview  of  its  power  and  authority 
fixed  by  this  act,  in  so  doing  to  administer  oaths  and  affirma^tions  and  to 
examine  on  oath  or  affirmation  any  person,  officer,  agent  or  clerk  of  any 
firm  or  corporation  touching  the  matters  which  in  the  judgment  of 
such  department,  ought  to  be  inquired  into  and  to  examine  and  to  sum- 


ON  ADMINISTRATIVE  REORGANIZATION  63I 

mon  and  by  attachment  compel  the  attendance  of  any  person  or  persons 
in  this  state  to  testify  under  oath  before  such  department  or  its  secretary 
or  any  deputy  or  any  assistant  or  employees  thereof  in  relation  thereto. 

"Sec.  25.  Power  of  departments  to  administer  lazus  assigned  to 
them.  Except  as  otherwise  provided  by  this  act,  each  department  shall 
have  exclusive  supervision,  regulation  and  general  control  over  the  en- 
forcement, execution  and  administration  of  the  laws  relating  to  the 
several  subjects  and  matters  assigned  in  this  act  to  the  departments 
respectively." 

It  will  be  noted  that  there  has  been  considerable  consolidation  under 
this  code  and  that  unusually  large  powers  are  centered  in  the  governor. 
The  administrative  departments  are  reduced  in  number  to  five;  the  gov- 
ernor is  given  authority  not  only  to  appoint  the  heads  of  these  depart- 
ments, but  also  to  appoint  and  fix  the  salaries  of  all  "deputies,  assistants, 
and  clerical  help". 

It  is  difficult  to  see  how  with  this  large  authority  the  consolidation 
effected  in  the  state  government  of  Nebraska  would  relieve  the  governor 
of  the  importunities  of  office-seekers  and  an  immense  amount  of  petty 
detail  that  would  tend  to  prevent  his  consideration  of  the  larger  problems 
of  administration. 

It  is  not  at  all  surprising,  in  view  of  this,  that  there  should  be  oi> 
position  to  the  new  code  in  Nebraska.  It  has  been  opposed  by  a  number 
of  newspapers  of  that  state  and  a  referendum  has  been  invoked  against 
it,  apparently  without  effect,  as  the  petitions  have  been  declared  inade- 
quate. 

In  answer  to  a  letter  of  inquiry  the  following  statement  is  made 
from  the  state  capital  of  Nebraska,  by  one  qualified  to  speak  from  a- 
knowledge  of  actual  conditions  there : 

"The  Nebraska  civil  administrative  code  has  now  gone  into 
efifect.  There  was  a  referendum  filed  but  the  position  was  taken 
that  the  petitions  were  not  legal  because  the  entire  bill  did  not 
appear  at  the  heading  of  each  petition,  and  also  that  persons  signing 
the  petitions  in  many  cases  thought  they  were  signing  petitions 
against  the  prohibition  amendment.  The  case  of  the  petitioners 
against  the  secretary  of  state  will  come  up  shortly  in  the  state 
supreme  court. 

"I  am  sorry  that  I  cannot  send  you  printed  matter  giving 
opinions  of  those  opposed  to  the  code.  The  newspapers  were  used 
as  the  medium  to  get  the  opposition  views  before  the  people.  The 
chief  objections  to  the  law  were  its  unwieldiness ;  its  centralization 
of  power  in  the  governor;  the  taking  over  by  the  department  of 
agriculture  the  present  powers  of  the  state  board  of  agriculture, 
—  a  private  organization  receiving  support  from  the  state ;  its  use- 
lessness  just  at  this  time  when  a  constitutional  convention  will  be 
held  next  winter." 

As  the  civil  administrative  code  of  Nebraska  covers  over  461  pages, 
the  difficulty  of  circulating  it  in  full  at  the  head  of  referendum  petitions 
is  readily  apparent. 


632  REl'ORT   OF   JOINT   LEC.ISLATIX  E   COMMITTEE 

In  an  article  contributed  to  The  American  Review  of  Reviews  for 
March,  1920,  Governor  Samuel  R.  McKelvie,  who.  was  elected  on  a 
platform  jjledged  to  reorganization  of  the  state  government  of  Nebraska, 
and  who  is  personally  given  chief  credit  for  the  creation  of  the  new  ad- 
ministrative code  of  that  state,  makes  the  following  statements  in  regard 
to  "results  already  achieved" : 

"In  operation  the  civil  administrative  code  in  Nebraska  has 
met  the  expectations  of  those  who  urged  its  adoption.  At  the  end 
of  the  first  five  months  of  its  operation,  it  had  saved  to  the  state 
over  $50,000  in  actual  costs  of  administration.  On  this  basis,  it 
is  fair  to  assume  that  the  saving  for  the  biennium  will  be  over 
$200,000.  In  one  division  alone,  the  registration  of  automobiles, 
a  saving  of  $8,000  per  annum  was  effected  in  cost  of  administration. 

"But  more  important  still  —  it  so  expedites  the  handling  of  the 
state's  business  that  those  requiring  service  receive  it  promptly, 
and  the'  tedious  details  which  accompany  the  system  of  administra- 
tion under  boards  and  commissions  are  largely  eliminated." 

In  his  introductory  arguments  in  favor  of  state  governmental  re- 
organization Governor  McKelvie  tells  us  that  the  movement  is  simply 
to  fashion  state  government  into  the  more  perfect  type  of  our  national 
government.    He  says  in  part: 

"Briefly,  it  is  simply  a  return  to  first  principles,  as  embodied  in 
the  government  of  the  United  States,  a  republic  the  like  of  which 
has  never  been  founded.  In  its  origin  it  stood  as  a  happy  medium 
between  two  extremes  —  on  the  one  hand,  an  autocracy  with  all 
power  centered  in  one  individual ;  on  the  other  hand,  a  pure  dem- 
ocracy with  direct  action  by  all  the  people.  It  was  indeed  a  repre- 
sentative form  of  government,  which  protected  individual  rights 
and  provided  for  the  economical  and  efficient  administration  of  the 
country.  The  entire  system  consisted  of  three  distinct  and  separate 
branches;  executive,  legislative,  and  judicial;  the  first  two  filled  by 
popular  vote,  and  the  third  by  appointment." 

Governor  McKelvie  is  an  enthusiastic  supporter  of  placing  large 
appointive  power  in  the  hands  of  the  governor.  The  new  code,  as  al- 
ready pointed  out,  provides  that  the  governor  shall  appoint  all  sub- 
ordinates, from  janitor  to  heads  of  departments.  His  advice  to  the 
constitutional  convention  of  his  state,  which  was  in  session  when  he  con- 
tributed the  article  from  which  quotation  is  made,  is  a  plea,  among  other 
things,  for  a  shorter  ballot  and  larger  powers  of  appointment.  Here  are 
his  seven  recommendations : 

"i.      The  executive  department  should  consist  of  a  governor,  lieu- 
tenant-governor, and  comptroller,  to  be  elected. 

2,  The  governor  to  be  elected  for  a  term  of  four  years,  and  not 
subject  to  re-election. 

3.  The  lieutenant-governor  to  be  elected  for  a  term  of  four  years 
and  to  serve  only  in  the  event  of  the  deatli  or  disability  of 
the  governor. 


ON   ADMINISTRATIVE  REORGANIZATION  633 

A  comptroller  to  serve  as  auditor  and  treasurer,  to  be  elected 
for  a  term  of  four  years,  and  not  subject  to  re-election.  He 
could  either  be  elected  by  direct  vote  of  the  people  or  by  the 
house  of  representatives. 

All  appointments,  aside  from  those  having  to  do  with  the 
office  of  comptroller,  should  be  made  by  the  governor,  with 
major  appointments  to  be  confirmed  by  the  senate.  The  cre- 
ation of  departments,  and  the  grouping  of  activities  with  them, 
to  be  left  to  the  legislature.  The  selection  and  term  of  service 
of  minor  employees  to  be  subject  to  a  limited  civil  service,  the 
provisions  of  which  the  legislature  should  determine.  _ 

There  should  be  no  boards,  except  those  that  are  quasi-judicial, 
and  quasi-legislative  or  having  to  do  with  education. 
Provisions  may  be  made  for  the  recall  of  any  of  these  officers, 
or  the  appointees  under  them,  upon  the  petitions  of  a  given 
percentage  of  qualified  electors." 


NEW   JERSEY 

The  governor  of  New  Jersey,  April  i,  1912,  approved  an  act  creating 
a  commission  to  report  upon  the  advisability  of  reorganization  and  con- 
solidation of  the  different  departments  of  the  state  government  whose 
functions  were  interrelated. 

The  commission  was  made  up  of  two  senators  appointed  by  the 
president  of  the  senate,  two  representatives  appointed  by  the  speaker 
of  the  house  and  three  citizens  appointed  by  the  governor. 

On  February  16,  1914,  the  committee  reported  that  it  had  investi- 
gated about  forty  offices  and  departments  and  recommended  reorganiza- 
tion that  should  save  the  state  $146,811  annually.  The  general  plan  of 
organization  recommended  provided  for  consolidation  of  different  depart- 
ments, boards  and  offices  under  a  director  for  each  new  department  with 
an  unpaid  advisory  board.  Specific  recommendations  were  made  for 
the  standardization  of  salaries  by  the  civil  service  commission  and  the 
standardization  of   stationery  by  the   state  house  commission. 

The  commission  made  an  annual  report  in  191 5  with  the  following 
recommendations : 

1 .  Creating  a  department  of  conservation  and  development  by  con- 
solidation of  the  state  geological  survey,  the  Forest  Park  reser- 
vation commission,  the  state  water  supply  commission  and  the 
state  museum  commission,  the  Washington  Crossing  park  com- 
mission and  the  Fort  Nonsense  commission. 

2.  Creating  a  department  of  commerce  and  navigation  by  the  con- 
solidation of  the  New  Jersey  ship  canal  commission,  riparian 
commission,  department  of  inland  waterways  and  the  inspectors 
of  power  vessels. 

3.  Creating  a  department  of  shell  fisheries  by  the  consolidation 
of  the  bureau  of  shell  fisheries,  the  New  Jersey  state  oyster 
commission,  the  oyster  commission  of  Atlantic  county,  the 
oyster  commission  of  Ocean  county  and  the  shark  river  com- 
mission. 


634  REPORT   OF  JOINT  LFX.ISLATIVE   COMMITTEE 

4.  A  reorganization  of  the  board  of  health  by  the  substitution  of  a 
director  of  health  in  the  place  of  five  paid  commissioners  and 
the  addition  of  an  advisory  board. 

5.  Consolidating  the  state  board  of  assessors  and  the  state  board 
of  equalization  of  taxes  and  providing  that  the  new  board  shall 
consist  of  six  members,  with  the  provision  that  the  board  can 
divide  into  courts  of  three  for  the  purpose  of  hearing  appeals, 
etc. 

6.  Transferring  the  engineers  of  the  present  department  of  the 
board  of  assessors  to  the  board  of  utility  commission,  but  in 
no  way  interfering  with  the  work  or  revaluation  and  assess- 
ments  now   in   charge   of   the   engineering  corps. 

7.  Providing  that  the  new  organization  of  the  board  of  health 
may  enforce  state  laws  in  local  districts. 

8.  Creating  a  department  of  labor  and  industry,  consolidating  the 
department  of  labor  and  bureau  of  industrial  statistics. 

The  report  for  1916  opens  with  the  statement  that  many  of  the 
recommendations  contained  in  the  report  of  1914  were  carried  into 
effect  with  satisfactory  results.  In  the  opinion  of  the  commission  the 
creation  of  new  agencies  in  the  state  government  should  be  confined  to 
those  activities  that  "cannot  find  consistent  lodgment  in  some  existing 
department." 

The  report  closes  with  the  following  suggestion : 

"Our  commission,  therefore,  begs  to  renew  its  recommendations 
formerly  submitted,  either  that  this  commission  should  be  continued 
or  that  a  permanent  economy  and  efficiency  commission  should  be 
created,  composed  of  members  who  will  serve  without  compensation 
and  who  have  had  experience  in  business  enterprises. 

"Such  a  commission  could  be  given  authority  to  examine  not 
only  the  field  of  state  government,  as  yet  untouched,  but  also  to  ex- 
amine the  operations  of  those  consolidations  and  reorganizations  al- 
ready effected." 

It  appears  that  in  the  state  of  New  Jersey  no  systematic  reorganiza- 
tion of  the  state  government  was  effected  or  attempted.  A  number  of 
changes  were  made,  however,  in  the  interest  of  efficiency  and  economy 
and  the  comment  upon  the  work  of  the  commission  has  been  generally 
very  favorable.  State  librarian  of  New  Jersey,  J.  P.  Dullard,  in  a  letter 
under  date  of  May  12,  1919,  briefly  summarizes  the  work  of  the  commis- 
sion as  follows : 

"Most  of  the  practical  eff^ect  of  the  work  of  the  commission  is 
to  be  found  in  the  enactment  of  a  number  of  laws  in  191 5.  consoli- 
dating various  state  departments.  These  laws,  which  will  be  found 
in  the  Session  Laws  of  New  Jersey,  are  as  follows : 

"Chapter  242  of  the  laws  of  1915  creating  a  department  of 
commerce  and  navigation.  A  consolidation  of  the  following  de- 
partment and  boards :  riparian  commission,  inland  waterways,  in- 
spection of  power  vessels,  and  New  Jersey  harbor  commission,  which 
latter  commission  absorbed  the  New  Jersey  ship  canal  commission. 


ON  ADMINISTRATIVE  REORGANIZATION  635 

"Chapter  241  of  the  laws  of  191 5  creating  department  of  con- 
servation  and  development.  A  consolidation  of  the  following  de- 
partments :  Forest  Park  reservation,  state  geological  survey,  Wash- 
ington Crossing  commission,  state  museum,  Fort  Nonsense  com- 
mission, state  water  supply  commission. 

"Chapter  387  of  the  laws  of  191 5  establishing  department  of 
shell  fisheries.  A  consolidation  of  bureau  of  shell  fisheries  and  the 
various  oyster  commissions  of  the  state. 

"Chapter  244  of  the  laws  of  191 5  creating  state  board  of  taxes 
and  assessments.  A  consoHdation  of  the  state  board  of  assessors 
and  the  state  board  of  equalization  of  taxes. 

"Others  passed,  which  were  more  or  less  the  result  of  the 
recommendations  of  the  economy  and  efficiency  commission,  are 
as  follows : 

"Chapter  28S  of  the  laws  of  IQ15  reorganizing  the  state  de- 
partment of  health,  chapter  40  of  the  laws  of  1916  reorganizing 
and  establishing  the  powers  of  the  department  of  labor,  chapter 
12  of  the  laws  of  1917  establishing  the  state  highway  department, 
a  consolidation  of  three  different  departments  having  to  do  with  the 
roads.  Chapter  147  of  the  laws  of  1918  creating  a  department 
of  charities  and  corrections,  involving  a  very  considerable  enlarge- 
ment of  the  powers  of  a  former  department  of  the  same  name. 
One  of  the  active  spirits  of  our  economy  and  efficiency  commission 
was  Governor  Edge*  who  at  the  time  of  the  creation  of  the  com- 
mission was  a  state  senator,  and  it  was  largely  through  his  influence 
and  the  experience  acquired  by  him  as  a  member  of  this  commission 
that  some  of  the  above  mentioned  laws  were  passed,  even  after  the 
commission  went  out  of  existence." 

NEW  YORK 

STATE  ADMINISTRATIVE   REORGANIZATION 

(Excerpts    from    reports    of   Reconstruction    Commission   of    New    York,   October 

10,  1919) 

Movement  prior  to  ipip 

As  early  as  1910  Governor  Hughes  in  his  annual  message  to  the 
legislature  recommended  administrative  reorganization  and  consolidation, 
which  he  said  would  "tend  to  promote  efficiency  in  public  office  by  in- 
creasing the  efifectiveness  of  the  voter  and  by  diminishing  the  oppor- 
tunities of  the  political  manipulators  who  take  advantage  of  the  multi- 
plicity of  elective  offices  to  perfect  their  scheme  at  the  public  expense." 
Furthermore,  he  believed  that  responsibility  should  be  ""centered  in  the 
governor  who  should  appoint  a  cabinet  of  administrative  heads,  account- 
able to  him  and  charged  with  the  duties  now  devolved  upon  elective 
state  officers." 

Following  this  message  a  resolution  to  amend  the  constitution  was 
introduced  in  the  assembly  of  1910  providing  for  the  appointment  of  all 
state  officers  except  the  governor  and  the  lieutenant-governor.  A  hot 
discussion  ensued  with  the  result  that  the  resolution  failed  to  pass. 

*Now  United  States  Senator  from  New  Jersey. 


62^6  REPORT   OF  JOINT  LEGISLATIVE    COMMITTEE 

The  movement  toward  consolidation  was  again  revived  in  the  election 
campaigns  of  1912.  In  1913  the  legislature  passed  a  bill  establishing  a 
department  of  efficiency  and  economy  under  a  commissioner  appointed 
by  the  governor  and  confirmed  by  the  senate  for  a  term  of  five  years. 
The  commissioner  was  authorized  to  study  all  branches  of  the  state 
government  and  to  make  recommendations  designed  to  promote  the 
general  conduct  of  the  state's  business.  In  1914  this  department  in  co- 
operation with  the  bureau  of  municipal  research  began  the  preparation 
of  a  report  on  the  government  and  administration  of  the  state  for  the 
constitutional  convention  which  was  to  meet  the  following  year.  As  a 
result  of  the  combined  efforts  of  these  two  agencies  there  was  published 
in  January,  191 5,  a  volume  of  more  than  seven  hundred  pages,  entitled 
"Government  of  the  state  of  New  York :  A  survey  of  its  organization  and 
functions."  This  volume  gave  a  minute  description  of  the  legislative, 
judicial  and  administrative  organizations  of  the  state  government.  It 
also  set  forth  graphically  all  the  agencies  of  the  state,  together  with  their 
functions,  number  of  employees,  salaries  and  other  costs,  and  their 
organic  relations  or  absence  of  relations.  The  report  showed  that  there 
were  one  hundred  and  sixty-nine  agencies,  most  of  which  had  been 
created  in  recent  years.  It  also  pointed  out  that  the;  entire  structure  of 
the  state  government  seemed  to  have  "grown  up  from  year  to  year, 
rather  than  to  have  been  built  according  to  any  studied  plan  of  scientific 
and  economic  needs."  Numerous  conflicts  of  authority  and  overlappings 
of  jurisdiction  were  pointed  out.  One  hundred  and  eight  boards  were 
shown  to  exist.  "A  number  of  them,"  said  the  report,  "were  created  for 
similar  purposes  and  a  number  perform  functions  for  which  there  already 
existed  at  the  time  of  their  creation  fully  organized  departments  of  the 
government.  Some  are  elected  by  the  legislature,  some  appointed  by  the 
governor,  some  are  of  ex-officio  membership,  some  are  paid,  others  are  not 
paid." 

Upon  the  completion  of  tiiis  joint  undertaking  the  bureau  of  munic- 
ipal research  was  requested  l)y  the  constitutional  convention  commission 
to  prepare  an  appraisal  of  the  existing  organization  of  the  state  govern- 
ment. In  compliance  with  this  request  the  bureau  issued  a  volume  en- 
titled "The  constitution  and  government  of  the  state  of  New  York"  in 
which  the  existing  structure  and  methods  of  the  state  government  were 
subjected  to  careful  and  com[)rehensive  analysis.  The  bureau  also  worked 
out  a  proposed  plan  of  administrative  reorganization  which  it  laid  before 
the  committees  of  the  constitutional  convention. 

In  1914  both  great  political  parties  of  the  state  seemed  clearly  to 
recognize  the  failure  of  the  existing  administrative  system.  The  repub- 
lican platform  of  that  year,  framed  especially  with  a  view  to  constitu- 
tional revision,  said : 

"We    recommend    a    substantial    reduction    in    the    number    of 
elective   officers  by   the  application   of  the   principles   of   the   short 


ON  ADMINISTRATIVE  REORGANIZATION  637 

ballot  to  the  executive  officers  of  the  state.  To  prevent  the  multi- 
plication of  offices,  we  recommend  that  the  various  administrative 
functions  of  the  state,  so  far  as  practicable,  be  vested  in  a  limited 
number  of  departments.  The  present  duplication  of  effort  and 
expense  in  the  public  institutions  of  the  state  should  be  remedied 
by  the  establishment  of  a  simpler  and  better  organized  system." 

The  democratic  platform  of  the  same  year  declared: 

"There  should  be  no  divided  authority  or  responsibility  in 
executing  and  administering  the  laws  of  the  state.  The  time  has 
come  to  give  the  people  control  of  their  executive  government. 
The  responsibility  should  be  centered  in  the  governor.  He  should 
have  the  absolute  power  of  removal.  The  various  boards  and  com- 
missions should  be  made  subject  to  the  control  of  the  governor." 

As  a  result  of  the  agitation  for  administrative  reform  and  reorgan- 
ization several  plans  were  prepared  and  laid  before  the  constitutional 
convention,  which  met  in  the  summer  of  19 15.  After  due  consideration 
of  these  plans  by  the  committee  on  the  governor  and  other  state  officers, 
a  proposed  amendment  to  the  constitution  was  submitted  to  the  conven- 
tion for  discussion.  This  amendment  proposed  to  establish  fifteen  de- 
partments : 

Justice,  Public   works, 

Audit  and  control,  Health, 

Education,  Agriculture, 

Public  utilities.  Charities  and  corrections, 

Conservation,  .  Banking, 

Civil  service,  Insurance, 

State,  Labor  and  industry. 

Taxation  and  finance. 

The  heads  of  the  department  of  justice  and  of  the  department  of 
audit  and  control  were  to  be  the  attorney-general  and  comptroller,  re- 
spectively, elected  at  the  same  time  and  for  the  same  term  as  the  gov- 
ernor. The  department  of  education  was  to  be  controlled  by  the  regents 
of  the  university  who  were  to  appoint  the  chief  administrative  officer 
of  the  department.  The  department  of  public  utilities  was  to  consist  of 
two  commissions  of  five  members  each,  appointed  by  the  governor  with 
the  consent  of  the  senate  for  terras  of  five  years,  and  removable  by  the 
senate  upon  recommendation  of  the  governor.  The  department  of  con- 
servation was  to  be  under  the  direction  of  a  civil  service  commission 
consisting  of  three  members  appointed  by  the  governor  with  the  consent 
of  the  senate  for  overlapping  terms  of  six  years.  The  remaining  depart- 
ments were  to  be  administered  by  single  heads  appointed  by  the  gov- 
ernor with  the  consent  of  the  senate  and  removable  by  him  in  his  dis- 
cretion. After  the  adoption  of  this  amendment,  no  new  departments 
were  to  be  created  by  the  legislature  but  all  new  functions  were  to  be  as- 
signed to  one  of  the  existing  departments.  The,  legislature  was  to  pro- 
vide for  the  internal  organization  of  the  departments. 


638  KEPOKT   OF  JOIXT  LLIGISLATINE   COMMITTKE 

The  general  principles  set  forth  in  this  amendment  had  been  dis- 
cussed before  the  committee  on  finance  and  the  committee  on  governor 
and  other  state  officers  by  such  men  as  Ex-President  Taft,  President 
Lowell  of  Harvard  and  President  Goodnow  of  Johns  Hopkins.  Follow- 
ing the  introduction  of  the  amendment  into  the  constitutional  convention, 
there  were  discussions  of  various  phases  of  the  proposed  administrative 
reorganization.  Mr.  Elihu  Root  said  that  the  existing  system  was  an 
"invisible  government"  in  which  the  political. boss  ruled  the  state  in  spite 
of  the  legislature,  the  governor,  and  the  other  elective  officers.  He  also 
said  that  men  were  appointed  to  office  not  for  the  service  they  would 
render  the  state  but  for  the  service  they  were  to  render  to  promote  the 
power  of  political  organizations.  Such  a  system,  he  declared  found  "its 
opportunity  in  the  division  of  powers,  in  the  six-headed  executive,  in 
which,  by  the  natural  workings  of  human  nature,  there  shall  be  oppofi- 
tion  and  discord  in  the  playing  of  one  force  against  the  other,  and  so 
when  we  refuse  to  make  one  governor,  elected  by  the  people,  the  real 
chief  executive,  we  make  inevitable  the  setting  up  of  a  chief  executive 
not  selected  by  the  people,  not  acting  for  the  people's  interest,  but  for 
the  selfish  interest  of  the  few  who  control  the  party,  whichever  party  it 
may  be." 

The  result  of  the  discussions  was  a  considerable  modification  of  the 
plan  presented  to  the  convention  by  the  committee  on  the  governor  and 
other  state  officers. 

The  plan  of  administrative  organization  as  finally  adopted  by  the 
constitutional  convention,  provided  for  seventeen  departments  to  exercise 
the  civil,  executive  and  administrative  functions  of  the  state. 

These  departments  were  as  follows : 

Law,  Charities  and  corrections. 

Finance,  Banking, 

Accounts,  Insurance, 

Treasury,  Labor  and  industry, 

Taxation,  Education. 

State,  Public  utilities. 

Public  works.  Conservation, 

Health,  Civil  service. 
Agriculture, 

The  heads  of  the  {lc])artnK-nl  of  law  and  of  llir  (le])artnK'nl  oi  finance 
were  to  be  the  attorney-general  and  ilic  ooni])trollc'r  respectively,  who 
were  to  be  elected  at  the  same  time  and  for  the  same  term  as  the  governor. 
The  head  of  the  department  of  labor  and  industry  was  to  be  an  industrial 
commission  or  commissioner  to  be  provided  by  law,  appointed  by  the 
governor  with  the  advice  of  the  senate.  The  department  of  education 
was  to  be  administered  by  the  university  of  the  state  of  New  York,  the 
chief  administrative  officer  of  which  was  to  be  appointed  by  the  regents 
of  the  university.     The  department   of  public  utilities  was  to  consist  of 


ON  ADMINISTRATIVE  REORGANIZATION  639 

two  public  service  commissions,  the  commissioners  to  be  appointed  by  the 
governor,  by  and  with  the  advice  and  consent  of  the  senate.  The  gov- 
ernor might  remove  any  commissioner  for  cause  after  an  opportunity  to 
be  heard.  The  department  of  conservation  was  to  be  under  the  direction 
of  the  conservation  commission  consisting  of  nine  commissioners  ap- 
pointed by  the  governor  by  and  with  the  advice  and  consent  of  the  senate 
with  overlapping  terms  of  nine  years  and  serving  without  compensation. 
The  commission  was  authorized  to  appoint  and  remove  a  superintendent 
and  also  to  appoint  his  subordinates.  The  department  of  civil  service  was 
to  be  under  the  direction  of  a  civil  service  commission  consisting  of  three 
members  appointed  by  the  governor  by  and  with  the  advice  and  consent  of 
the  senate  for  overlapping  terms  of  six  years.  The  remaining  ten  de- 
partments were  to  have  single  heads  who  were  to  be  appointed  by  the 
governor  and  removable  by  him  in  his  discretion.  The  reason  given  for 
the  concurrence  of  the  senate  in  the  appointment  of  heads  of  the  depart- 
ments of  labor  and  industry,  public  utilities,  conservation  and  civil  serv- 
ice was  because  such  departments  performed  both  legislative  and  ad- 
ministrative functions. 

Only  very  general  powers  were  prescribed  for  the  several  depart- 
ments. In  some  cases  the  prescribing  of  duties  was  left  entirely  to 
subsequent  legislative  action.  In  the  case  of  the  department  of  finance 
it  was  stated  that  the  comptroller  should  exercise  all  powers  and  duties 
at  that  time  devolving  upon  him  except  the  powers  of  examination  and 
verification  of  accounts,  which  duties  were  vested  in  the  department  of 
accounts. 

This  plan  of  reorganization  reduced  the  number  of  elective  state 
officers  from  seven  to  four,  leaving  only  the  governor,  lieutenant-gov- 
ernor, comptroller  and  attorney-general  to  be  chosen  by  the  voters.  The 
secretary  of  state  and  the  treasurer  were  to  be  appointed  by  the  governor, 
and  the  office  of  state  engineer  and  surveyor  was  to  be  abolished. 

The  plan  of  administrative  reorganization  and  consolidation  pro- 
posed by  the  constitutional  convention  and  embodied  in  the  proposed 
constitution  was  submitted  to  the  people  in  November,  191 5,  and  de- 
feated at  the  polls.  Until  the  present  there  has  been  little  attempt  to 
revive  the  movement  in  New  York  for  administrative  reorganization. 

Principles  of  Plan  of  Administrative  Organization  and  Budget 
(Proposed  by  Reconstruction  Commission,  October  10,  1919) 
The  experience  of  other  states  in  the  union,  the  experience  of  the 
national  government  with  a  consolidated  administration  and  a  cabinet 
system  and  the  recommendations  of  competent  authorities  lead  us  to  the 
conclusion  that  retrenchment  and  responsibility  in  the  government  of  the 
state  of  New  York  can  be  achieved  only  through : 

I .      A  consolidation  of  all  administrative  departments,  commissions, 
offices,    boards    and    other    agencies    into    a    small    number    of 


640  REPORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

departments,  each  headed  by  a  single  officer,  except  departments 
where  quasi-legislative  and  quasi-judicial  or  in<5nectional  and 
advisory  functions  require  a  board. 

2.  The  adoption  of  the  principle  that  the  ^vernor  is  to  be  held 
responsible  for  good  administration  and  to  have  the  power 
to  choose  the  heads  of  departments  who  e  to  constitute  his 
cabinet  and  who  are  to  be  held  strictly  c. countable  to  him 
through  his  power,  to  appoint  and  remove  and  through  his 
leadership  in  budget  preparation.  This  involved  among  other 
things  the  reduction  m  the  number  of  elective  administrative 
officers  to  two :  the  governor  and  a  comptroller  to  act  as  inde- 
pendent financial  auditor.  Although  there  are  objections  to  the 
confirmation  by  the  senate  of  nominations  by  the  governor,  we 
are  of  the  opinion  that  this  check  has  on  the  whole  worked 
well  and  should  be  retained. 

3.  The  extension  of  the  term  of  the  governor  to  four  years  and 
the  careful  adjustment  of  the  terms  of  department  heads  with 
reference  to  the  term  of  the  governor.  Excepting  members 
of  boards  with  overlapping  terms,  department  heads  should 
have  the  same  term  as  the  governor. 

4.  The  grouping  of  related  offices  and  work  in  each  of  the  several 
departments  into  appropriate  divisions  and  bureaus,  responsi- 
bility for  each  branch  of  work  to  be  centralized  in  an  account- 
able chief. 

5.  A  budget  system  vesting  in  the  governor  the  full  responsibility 
for  presenting  to  the  legislature  each  year  a  consolidated  budget 
containing  all  expenditures  which  in  his.  opinion  should  be 
undertaken  by  the  state,  and  a  proposed  plan  for  obtaining  the 
necessary  revenues  —  such  a  budget  to  represent  the  work  of 
the  governor  and  his  cabinet.  Incorporation  of  all  appropri- 
ations based  upon  the  budget  in  a  single  general  appropriation 
bill.  Restriction  of  the  power  of  the  legislature  to  increase 
items  in  the  budget.  Provision  that  pending  action  on  this  bill 
the  legislature  shall  not  enact  any  other  appropriation  bill 
except  on  recommendation  of  the  governor.  Granting  to  the 
governor  the  power  to  veto  items  or  parts  of  items.  Provision 
that  special  appropriation  bills  introduced  after  final  action  on 
the  general  appropriation  bill  shall  secure  the  specific  means 
for  defraying  appropriations  carried  therein. 

The  only  serious  argument  advanced  against  such  a  proposed  re- 
organization and  budget  system  is  that  it  rjiakes  the  governor  a  czar. 
The  president  of  the  United  States  has  administrative  powers  far  greater 
than  those  here  proposed  to  be  given  to  the  governor.  The  mayor  of 
the  city  of  New  York  appoints  and  removes  all  of  the  important  depart- 
ment heads,  and  citizens  know  whom  to  hold  accountable.  The  governor 
does  not  hold  office  by  hereditary  right.  He  is  elected  for  a 
fixed  term  by  universal  suffrage.  He  is  controlled  in  all  minor  appoint- 
ments by  the  civil  service  law.  He  cannot  spend  a  dollar  of  the  public 
money  which  is  not  authorized  by  the  legislature  of  the  state.  He  is 
subject  to  removal  by  impeachment.  H  he  were  given  the  powers  here 
proposed   he   would    stand   out   in   the   limelight   of   public   opinion   and 


ON  ADMINISTRATIVE  REORGANIZATION  64I 

scrutiny.  Economy  in  administration,  if  accomplished,  would  redound 
to  his  credii  Waste  r -'J  extravagance  could  be  la;d  at  his  door.  Those 
v^ho  cannot  endure  e  medicine  because  it  seems  too  strong  must  be 
content  with  waste  uefficiency  and  bungling  —  and  steadily  rising  cost 
of  government.  T  c;  system  here  proposed  is  more  democratic,  not  more 
"royal"  than  that  now  in  existence.  Democracy  dogs  not  merely  mean 
periodical  elections.  It  means  a  government  held  accountable  to  the 
people  between  elections.  In  order  that  the  people  may  hold  their  govern- 
ment to  account  they  must  have  a  government  that  they  can  understand. 
No  citizen  can  hope  to  understand  the  present  collections  of  departments, 
offices,  boards  and  commissions,  or  the  present  methods  of  appropriating 
money.  A  governor  with  a  cabinet  of  reasonable  size,  responsible  for 
proposing  a  program  in  the  annual  budget  and  for  administering  the 
program  as  modified  by  the  legislature  may  be  brought  daily  under 
public  scrutiny,  held  accountable  to  the"  legislature  and  public  opinion, 
and  be  turned  out  of  office  if  he  fails  to  measure  up  to  public  require- 
ments. If  this  is  not  democracy  then  it  is  difificult  to  imagine  what  it  is. 
The  proposals  here  advanced  are  not  partisan.  Republican  leaders  and 
democratic  leaders  of  the  highest  standing  and  widest  experience  have 
endorsed  the  principles  upon  which  they  rest.  They  have  appeared  in 
the  progressive  and  socialist  platforms.  Every  governor  in  recent  years 
has  made  some  recommendations  along  these  lines,  but  the  issue  ha? 
never  been  placed  squarely  before  the  people. 

Departments  Proposed    by   Reconstruction    Commission 
The  state  government  will  be  organized  with  the  following  depart- 


ments : 


Executive  department. 

Department  of  audit  and  control. 

Department  of  taxation  and  finance. 

Department  of  attorney-general. 

Department  of  state. 

Department  of  public   works. 

Department  of   conservation. 

Department  of  agriculture  and  markets. 

Department  of  labor. 

Department  of  education. 

Department  of  health. 

Departments  of  mental  hygiene,  charities  and  corrections. 

Public  service  commissions. 

Departments  of  banking  and  insurance. 

Department  of  civil  service. 

Department  of  military  and  naval  affairs. 


OREGON 
By  concurrent  resolution  the  general  assembly  of  Oregon  on  Feb- 
ruary 20,  1917,  provided  for  a  commission  of  seven  members,  composed 
41 


642  REPORT   OF   JOINT  LEGISLATIVE   COMMITTEE 

of  representative  business  men  of  Oregon,  to  study  state  administration 
with  a  view  to  consolidation  and  elimination  of  offices,  boards  and  com- 
missions. The  commission  adopted  the  following  title :  "Consolidation 
commission  of  the  state  of  Oregon".  It  was  instructed  to  report  to  the 
legislature  in  1919. 

The  preliminary  report  was  made  to  the  legislative  assembly  in 
1918.  This  details  the  plan  of  the  commission  and  opens  with  a  sum- 
mary of  economies  to  be  effected  if  the  plan  is  authorized  by  law.  It 
is  estimated  that  the  adoption  of  the  plan  would  make  possible  a  saving 
of  $421,263.99  yearly.  This  does  not  take  into  account  the  reduction  of 
clerical  help  and  other  economies  which  would,  in  the  opinion  of  the 
commission,  increase  the  annual  saving  to  $500,000.  In  concluding  this 
report  the  commission  promises  to  submit  a  bill  embracing  the  results 
of  its  findings  and  recommendations. 

The  final  report  of  the  commission  was  submitted  to  the  governor 
late  in  the  legislative  session  of  1919.  This  report  contains  a  bill  follow- 
ing somewhat  closely  in  general  outline  the  administrative  code  of  Illinois 
It  provides  for  a  complete  reorganization  of  one  hundred  fifty  boards 
commissions  and  other  governmental  agencies  of  the  state  under  ten 
different  department  heads  each  responsible  directly  to  the  governor.  In 
this  report  the  commission  states  among  other  things : 

"We  submit  that  there  is  a  strong  feeling  throughout  the  state 
favorable  to  some  well  defined  system  of  consolidation  or  reorgan- 
ization of  our  state  departments  and  from  the  experience  of  many 
cities  and  not  a  few  states  throughout  the  United  States,  coordination 
of  departments  along  the  line  here  suggested  has  proved  most  satis- 
factory and  has  been  the  means  of  eft'ccting  quite  a  large  saving  to 
the  taxpayers.  However,  the  greater  efficiency  to  our  state  under  this 
reorganization  would  in  our  judgment  be  of  even  greater  benefit  than 
the  saving  and  expense.  With  this  thorough  reorganization  of  our 
state  departments  there  would  always  be  a  place  in  which  to  throw 
any  new  bureau  it  might  be  found  in  the  future  necessary  to  estab- 
lish or  a  new  place  to  do  such  new  work  and  thus  save  the  creation 
of  any  new  bureau  or  department. 

"Might  we  not  suggest  for  your  consideration  that  since  the  ses- 
sion is  quite  well  advanced  and  perhaps  the  members  would  not  feel 
that  they  would  have  ample  time  to  carefully  consider  the  bill  which 
we  here  recommend,  that  the  same  might  be  sul)mitted  to  a  vote  of 
the  people  at  the  next  regular  or  special  election? 

"We  beg  to  call  your  special  attention  to  the  fact  that  the  legis- 
lature of  the  state  of  Idaho  now  in  session  has  just  passed  a  similar 
bill  reorganizing  their  state  government  even  in  a  more  complete  way 
than  is  hereby  suggested." 

The  general  assembly  of  Oregon  does  not  seem  to  have  acted  upon 
the  suggestion  of  the  commission  to  submit  its  bill  to  a  vote  of  the 
people.  At  this  date  no  action  has  been  taken  to  carry  its  comprehensive 
recommendation  for  reorganization  into  effect. 


ON  ADMINISTRATIVE  REORGANIZATION  643 


PENNSYLVANIA 
The  state  of  Pennsylvania  by  resolution  approved  July  25,  1913, 
created  an  efficiency  and  economy  commission  of  three  members  to  be 
appointed  by  the  governor  at  salaries  of  $3,000  each.  The  duties  of  the 
commission  were  to  investigate  the  number,  character  of  duties  and  com- 
pensation of  all  persons  in  the  employ  of  the  state,  and  to  ascertain  what 
changes,  if  any,  may  be  necessary  to  secure  greater  uniformity,  economy 
and  efficiency  in  the  work  of  the  various  departments,  branches,  bureaus 
and  commissions  of  the  state.  A  report  was  made  to  the  governor  under 
date  of  Dec.  24,  1914,  in  which  the  commission  set  forth  the  subjects 
of  its  special  investigation  as  follows : 

1 .  The  acts  of  assembly  creating  and  relating  to  the  various  de- 
partments, also  rules  and  regulations  pertaining  to  or  relating 
to  the  same. 

2.  The  name,  compensation  received  and  duties  actually  performed 
by  each  employe,  and  the  necessity  for  such  employment. 

3.  Whether  or  not  the  position  was  created  by  statute,  or  was 
temporary  employment  made  by  appropriation  from  session  to 
session,  or  paid  out  of  the  fund  commonly  known  as  the  con- 
tingent fund. 

4.  Obsolete  departments,  boards  and  commissions. 

5.  Duplication  of  work  and  conflict  of  authority. 

6.  Methods  of  centralization  and  improvement. 

This  statement  of  the  scope  of  its  work  is  supplemented  as  follows : 

"It  is  universally  understood  in  the  business  world  that  to  com- 
mand ability,  thereby  bringing  into  business  enterprises  efficiency,  it 
is  necessary  to  provide  compensation  commensurate  with  the  respon- 
sibility and  duties  imposed.  This  principle,  however,  is  not  to  any 
great  extent  found  in  the  administration  of  state  governments. 

"Well  regulated  business  enterprises  in  order  to  prevent  waste 
and  duplication  of  labor  undergo  a  process  of  reorganization  at  least 
every  decade,  eliminating  unnecessary  divisions  and  departments  and 
centralizing  and  consolidating  others.  Such  a  system  is  just  as  im- 
portant, if  not  doubly  important,  in  the  administration  of  the  aflfairs 
of  a  commonwealth,  the  necessity  for  which  is  emphasized  because 
of  the  establishment,  bv  the  general  assembly  from  time  to  time  of 
new  departments,  boards  and  commissions." 

There  was  evidently  no  purpose  on  the  part  of  the  commission  to 
radically  reorganize  the  state  government  or  seriously  disturb  the  existing 
order  of  things.  With  the  exception  of  a  recommendation  of  the  adop- 
tion of  the  civil  service  system  for  the  state,  there  is  nothing  in  the 
report  to  mar  the  serenity  of  the  5,152  office  holders  and  employes  of 
that  commonwealth.  Additional  employes  are  suggested  for  a  number 
of  departments  at  comfortable  salaries  and  the  recommendation  for  in- 
creased appropriations  occurs   with  such   regularity  through  the  report 


644         ■  REPORT   OF   JOIMT  LEGISLATIVE   COMMITTEE 

that  the  efficiency  commission  must  have  concluded  its  labors  to  the 
general  satisfaction  of  the  office  holders  of  that  state.  Just  why  it  was 
not  perpetuated  has  not  yet  been  recorded.  One  department  for  all  the 
multigraphing  and  addressing  of  the  state  is  recommended  in  the  interest 
of  economy. 

The  appendix  to  the  report  contains  a  list  of  all  the  state  depart- 
ments and  governmental  agencies  with  reference  to  the  acts  creating 
the  same  and  the  name,  position  and  compensation  of  each  officer  and 
employe. 

TEXAS 

At  the  third  called  session  of  the  35th  legislature  of  Texas  in  191 7 
a  resolution  was  adopted  creating  a  legislative  committee  "To  investigate 
departments  of  the  state  government  and  state  institutions."  This  com- 
mittee consisted  of  ten  members  of  the  senate  and  ten  members  of  the 
house.  The  work  was  divided  among  ten  sub-committees.  Under  the 
resolution  the  committee  was  instructed  to  make  recommendations  in  the 
interest  of  efficiency  and  economy. 

The  report  of  the  committee  was  filed  February  ist,  1918.  The  ten 
recommendations  included  changes  for  almost  every  department,  division 
and  bureau  in  the  state  government.  ■  The  more  important  of  these  sug- 
gested changes  are  readily  inferred  from  the  following  estimate  of  sav- 
ings which  would  result  if  the  recommendations  of  the  committee  were 
carried  into  effect  :• 

Estima ted  Savings 

1 .  The  discontinuance  in  the  senate  of  the  positions 
of  mailing  clerk  and  notarial  clerk  and  their  as- 
sistants will  save  to  the  state  $900,  per  month, 
while  the  legislature  is  in  session,  which  is  esti- 
mated as  an  annual  saving  of   $     1,000.00 

2.  The  recommendations  as  to  increases  in  fees  ia 
the  general   land  office  will  result  in  an  annual 

gain  of  approximately    25,000.00 

3.  The  discontinuance  of  the  office  of  assistant  at- 

torney general  for  the  court  of  criminal  appeals  5,000.00 

4.  The  abandonment  of  the  Grubbe  vocational  col- 
lege will  result  in  a  saving  of  $100,000  now  avail- 
able   to  be   spent    for  buildings,   and   an   annual 

saving  of    62,300.00 

5.  The  repeal  of  the  laws  creating  the  new  normals 
will  result  in  an  initial  saving  of  $550,000.00  and 

an  annual  saving  of 270,000.00 

6.  The  transfer  of  the  work  of  the  industrial  acci- 
dent board  as  recommended,  will  result  in  annual 

saving  of   20,000.00 

7.  The  abolishing  of  the  warehouse  and  marketing 
dei)artment  and  the  transfer  of  the  duties  of  such 
department   to  a  bureau   of   markets   and  ware- 


ON  ADMINISTRATIVE  REORGANIZATION  645 

houses  in  the  department  of_  agriculture ;  the 
abandonment  in  the  department  of  agriculture 
of  institute  work,  the  division  of  plant  patholog>% 
edible  nuts,  and  live  stock  which  is  now  being 
conducted  at  the  agricultural  and  mechanical 
college,  will  result  in  an  annual  saving  of _.         60,000.00 

8.  The  transfer  of  the  feed  control  from  the  agri- 
cultural and  mechanical  college  of  the  depart- 
ment of  agriculture  will  result  in  an  annual  sav- 

ino-  of 20,000.00 

9.  The  transfer  of  the  foul  brood  work  from^  the 
agricultural  and  mechanical  college  to  the  depart- 
ment of  agriculture  will  result  in  an  annual  sav- 
ing of    . 5,000.00 

10.  Combining  the  positions  of  the  superintendent 
and  storekeeper  at  the  confederate  home  will  re- 
sult in  an  annual  saving  of    1,000.00 

11.  The  transfer  of  the  quarantine  service  to  the  fed- 
eral   government    will    result    in    an_  immediate 

saving  of  $210,000  and  an  annual  saving  of 30,000.00 

12.  The  .abolishment  of  the  state  fire  rating  board 
and  recommendations  in  regard  to  the  fish  and 
oyster  commission  will  result  in  an  annual  sav- 
ing  of ; 25,525.00 

13.  The  elimination  of  the  alphabetical  list  of  the 
highway  department "  will  result  in  an  annual 
saving  of  $10,000  and  the  reorganization  of  that 
department  as  recommended  will  result  in  an^  an- 
nual saving  of  $20,000  aggregating  the  annual 

saving  of 30,000.00 

14.  The  passage  of  a  law  recommended  to  preserve 
the  life  of  the  railroad  commission  as  a  rate 
making  body  will  save  the  people  of  Texas,  from 
five  to  ten  million  dollars  in  freight  rates  and 
the  elimination  of  the  pipe  line  expert  will  result 

in  a  direct  annual  saving  of 3,600.00 

15.  The  passage  of  a  new  depository  law  will  result 

in  an  annual  gain  to  the  state  of  at  least 150,000.00 

16.  The  formation  of  the  purchasing  and  managing 
board  to  conduct  an  auditing  system,  to  take 
over  the  work  of  the  purchasing  agent,  state  ex- 
pert printer,  superintendent  of  the  public  build- 
ings and  grounds,  and  inspector  of  masonry,  to 
act  as  a  board  of  control  for  all  eleemosynary 
institutions  will  result  in  an  annual  saving  of  at 

least    7 . '. .  •  •       250,000.00 

17.  The  consolidation  of  the  reclamation  department 
of  the  board  of  water  engineers  will  result  in  an 

annual  saving  of 16,275.00 

18.  The  consolidation  of  the  pension  department 
with  the  comptroller's  department  will  result  in 

an   annual   saving   of    r 6,000.00 

19.  The  abolishment  of  the  tax  commissioner's  office, 
as  recommended  will  result  in  an  annual  saving 

of    4,544-0O 


646  REPORT   OF   JOINT  LEGISLATIXE   COMMITTEE 

20.  The  abolishment  of  the  state  revenue  department 
as  recommended  will  result  in  an  annual  saving 

of 13,650.00 

21.  Audit  of  the  department  of  state  resulted  in  net 

gain   to   the    state   of 9,711.95 

22.  Audit   of    the   books   of    the    superintendent    of 
public  buildings  and  grounds   resulted  in  a  net 

gain  to  the  state  of   2,212.00 

General  Summary  of  Saving  and  Gain 

Amount  turned  into  state  treasury  by  committee  audit $  11,923.95 

Amount  saved  by  transfer  of  state  quarantine  to  federal 

control 210,000.00 

Amount  saved  by  repeal  of  appropriations  for  new  normals  550,000.00 
Amount  saved  by  repeal  of  appropriation  for  Grubbe  voca- 
tional school   100,000.00 

Total  immediate  saving $871,923.95 

Estimated  annual  saving  by  board  of  control  operation.  .  .  $250,000.00 

Estimated  annual  saving  by  depository  law  operation 150,000.00 

Estimated  annual  saving  by  department  reform 598,894.00 

Total  estimated  annual  saving  and  gain $998,894.00 


VIRGINIA 

By  act  approved  March  16,  191 6,  the  general  assembly  of  the  state  of 
Virginia  authorized  the  creation  of  a  commission  on  efficiency  and 
economy  to  consist  of  one  member  of  the  state  senate  appointed  by  the 
president  of  the  senate;  two  members  of  the  house  of  representatives 
appointed  by  the  speaker  of  the  house,  and  two  members  appointed  by 
the  governor.  The  commission  was  charged  "with  the  duty  of  making 
a  careful  and  detailed  study  of  the  organization  and  methods  of  the 
state  and  local  government  of  the  commonwealth  of  Virginia  and  with 
reporting  to  the  next  general  assembly  of  Virginia  in  what  way  the 
state  and  local  government  can  be  more  efficiently  and  economically  organ- 
ized and  administered". 

The  commission,  in  its  report  to  the  general  assembly  of  Virginia, 
January  9,  1918,  made  the  following  recommendations: 

1 .  The  introduction  of  a  modern  budget  system. 

2.  Supervision  of  all  accounts. 

3.  Standardization  of  expense  accounts. 

4.  Uniform  fiscal  year. 

5.  Abolition  of  fees. 

6.  Uniform  office  hours. 

7.  Abolition  of  employment  of  special  attorneys  and  inspectors. 

8.  The    location   of   offices,   scattered   in   different   parts   of   the 
capital,  in  a  single  building. 

9.  Centralized  supervision  of  the  capital  and  state  buildings. 


ON  ADMINISTRATIVE  REORGANIZATION  647 

10.  Collective  purchasing. 

11.  State  insurance  of  state  property. 

12.  Establishment  of  civil  service. 

13.  Complete  reorganization  of  the  educational  system  of  the  state. 

14.  The  appointment  of  a  commission  to  recommend  revision  of 
certain  sections  of  the  state  constitution  relating  to  educa- 
tion and  report  conclusions  to  the  general  assembly. 

The  commission  associated  with  itself  in  the  work  a  "citizens  co- 
operative committee"  of  ten  members  who  seem  to  have  acted  in  an 
advisory  capacity.  The  commission  justly  complains  of  the  inadequate 
appropriation  made  for  the  extensive  work  it  was  authorized  to  do.  In 
fact,  it  seems  that  no  systematic  investigation  was  conducted  for  the 
simple  reason  that  no  funds  were  provided  for  such  investigation.  The 
report,  which  covers  thirty-three  pages,  represents  the  judgment  of  the 
commission  as  to  what  changes  should  be  eflfected,  but  this  judgment 
under  the  circumstances  could  not  be  based  upon  a  thorough  investiga- 
tion of  the  various  departments  of  state  government. 

The  following  statement  under  the  caption  of  "Needed  Changes 
Obvious"  is  a  summary  of  the  conclusions  of  the  committee : 

"In  order  not  to  divert  the  attention  of  the  general  assembly 
away  from  the  more  important  changes  which  should  be  made  in  the 
interest  of  greater  economy  and  efiiciency,  the  commission  has  con- 
cluded it  best  to  offer  detailed  suggestions  for  supplying  a  few  of  the 
big,  general  and  most  pressing  needs  for  the  state  government,  rather 
than  to' point  out  at  this  time  the  numerous  specific  departmental 
changes  that  should  be  made,  and  the  number  of  imnecessary  agencies 
that  should  be  abolished.  Many  of  these  desirable  changes  will  be 
suggested  to  the  general  assembly  by  a  study  of  the  graphical  exhibits 
submitted  with  this  report  without  having  to  have  them  pointed  out 
by  this  commission." 

Much  space  in  the  concluding  portion  of  the  report  is  devoted  to 
a  criticism  of  the  school  system  of  the  state,  which,  in  the  opinion  of 
the  commission  could  not  be  improved  without  revision  of  the  state  con- 
stitution. The  report  contains  three  charts  which  graphically  exhibit  the 
existing  state  government  of  Virginia,  its  various  boards,  commissions 
and  their  official  agencies. 

Nb  important  legislation  has  resulted  from  the  investigations  of  the 
commission. 

BIBLIOGRAPHY 

A  bibliography  on  state  administrative  reorganization,  prepared  by 
direction  of  your  committee,  immediately  follows  this  report.  It  is 
believed  that  this  will  be  helpful  to  those  wishing  to  make  a  further  study 
of  this  subject. 


BIBLIOGRAPHY 
EFFICIENCY  AND  ECONOMY 

With  Special  Refer^'"'^"  '  ^    ~^ate  Government 
LIST  OF  REFERENCES 


BY    C.    B.    GALBREATH 


General 


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V.  7:  326-328. 
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V.  7 :   273-275 
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Political  Science  Review.     1915.     v.  9:  488-495. 
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V.  11:    318-319- 
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648 


ON  ADMINISTRATIVE  REORGANIZATION  649 

Meniam,  C.  E.  Investigations  as  a  means  of  securing  administrative 
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Barnett,  J.  D.  Reorganization  of  State  administration  in  Oregon.  Com- 
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Barnett,  J.  D.  Reorganization  of  state  government  in  Oregon.  Ameri- 
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Barrows,  D.  P.  Reorganization  of  state  administration  in  California. 
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Bates,  F.  J.  Reorganization  of  state  administration.  American  Political 
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Beard,  C.  A.  Reconstructive  state  government.  The  New  Republic. 
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Bradford,-  G.  Reform  of  our  state  governments.  American  Academy 
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Buck,  A.  E.  Administrative  reorganization  in  state  governments. 
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Chase,  H.  S.  Report  to  Doctor  F.  Goodnow,  chairman  and  the  mem- 
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Chase,  H.  Tr.  Kansas  general  manager  plan.  National  Municipal  Re- 
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Craig,  C.  P.  Efficiency  in  state  administration.  Commercial  West. 
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Crenner,  C.  H.  A  survey  of  state  executive  organizations  and  a  plan 
of  reorganization.     1916. 

Croly,  H.  Problems  of  reconstruction.  (In  his  The  Promise  of  Amer- 
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Croly,  H.  State  Political  Reorganization.  American  Political  Science 
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Davis,  D.  W.  How- administrative  reorganization  is  working  in  Idaho. 
National  Municipal  Review.     1919.     v.  8:  615-620. 

Dodd,  W.  F.  Proposed  reforms,  in  state  government  organization. 
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Dodd,  W.  F.  The  consolidation  of  government  agencies  in  Illinois. 
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Dodd,  W.  F.  The  Illinois  Legislature  of  191 7.  American  Political 
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Durand,  E.  D.  The  economy  and  efficiency  commission  of  Minnesota. 
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Dykstra,  C.  A.  The  reorganization  of  state  government  in  Kansas. 
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Dykstra.  C.  A.  The  reorganization. of  the  administration  of  state  insti- 
tutions in  Kansas.  1917.  National  Municipal  Review,  v.  6: 
505-506. 


650  KKPORT   OF  JOINT   LIX.ISLATIVE   COMMITTEF 

Fairlie,  J.  A.  Governmental  reorganization  in  Illinois.  American  Po- 
litical Science  Review.     191 5.     v.  9:  252-257, 

Fairlie,  J.  A.  Illinois  —  Civil  administration  reform;  radical  reorganiza- 
tion of  state  government.  New  York  Evening  Post.  March  29, 
1917.     p.  9. 

Ford,  H.  J.  Reorganization  of  state  government.  Academy  of  Political 
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Hemenway,  H.  B.  The  organization  of  the  state  executive  in  Illinois. 
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Government  in  the  United  States.     191 6.     p.  447-480.) 

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Government  in  the  United  States.     1916.     p.  447-480.) 

Horack,  F.  E.  Administrative  reorganization  in  Iowa.  American  Po- 
litical Science  Review.     1915.    v.  9:  258-263. 

Horack,  F.  E.  Reorganization  of  state  government  in  Iowa.  Iowa 
Applied  Historical  Series.     1914.     v.  2:     No.  2. 

How  far  American  states  pay  as  they  grow.  Literary  Digest.  1916.  v. 
53 :  645-647. 

Iowa.  State  Historical  Society.  Reorganization  of  state  government  in 
Iowa.    Iowa  Applied  Historical  Series.     1914.    v.  2:  No.  2. 

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James, _H.  G._  The  reorganization  of  state  government.  American  Po- 
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to  the  state.  (In  his  Unpopular  Government  in  the  United  States. 
1914.    p.  166-180.) 

Kales,  A.  M.  Contemporary  plans  looking  toward  the  union  of  the 
executive  and  legislative  powers  of  state  governments.  (In  his  Un- 
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KaufYman,   J.   H.     Financial  condition   of  the   state.     Ohio   Muni... 
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Kelso,  R.  W.  Functional  public  service.  How  Massachusetts  has  r-^- 
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Lewis,  H.  T.  Idaho  sets  its  house  in  order.  National  Municipal  Review. 
1919.  V.  8:  216-218. 

Lowden,  F.  O.  Business  Government.  Saturday  Evening  Post.  1920. 
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Lowden,  F.  O.  The  budget  system  in  Illinois.  American  Review  of 
Reviews.    1920.    v.  61.    295-298. 

Lowrie,  S.  G|  The  organization  and  duties  of  the  Wisconsin  state  board 
of  public  affairs.     1912. 

McKelvie,  S.  R.  A  responsible  form  of  government.  Nebraska's  new 
civil  administrative  code.  American  Review  of  Reviews.  1920. 
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Maltbie,  M.  R.  Cost  of  government  in  city  and  state.  Municipal  affairs 
1900.    V.  4:685-597. 

Mathews.  J.  M.  State  boards  and  commissions.  (In  his  Principles  of 
American  State  Administration.     1917.    p.  156-171.) 

Mathews,  J.  M.  The  reorganization  of  state  administration.  (In  his 
Principles  of  American  State  Administration.     1917.    p.  499-515.) 


ON  ADMIXISTRATIVE  REORGANIZATION  651 

Moley,  Raymond.  State  movement  for  efficiency  and  economy.  1917. 
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Moxey,  C.  C.  The  Delaware  Survey.  National  Municipal  Review. 
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New  York  Bureau  of  Municipal  Research,.  The  constitution  and  govern- 
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Reed,  T.  H.    Government  for  the  people.     1915.    Chapter  II. 

Requa,  M.  L.  Wastefulness  and 'inefficiency  of  governmental  expendi- 
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Rowell,  H.  State  political  reorganization.  The  American  Political  Sci- 
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Tax  association  plan  of  reorganization.  Tax  Payers'  Journal.  March 
13,  1919.    V.  3:  3-6. 

Tyng,  T.  S.  Draft  of  a  frame  of  government.  Political  Science 
Quarterly.     1912.    v.  27:  193-214. 

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Legislative  Reference  Bureau;  Bulletin  No.  7,  1915.) 

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Political  Science  Review.     1915.     v.  9:  273-286. 


STATE  DOCUMENTS 
Alabama  — 

Legislative  Investigating  Committee. 
Report  1915. 

Act  to  Create  State  Board  of  Control  and  Economy,  approved  Febru- 
ary 13,  1919. 

California  — 

Commission  on  Efficiency  and  Economy. 
Report  to  governor.     March  12,  1919. 

Colorado  — 

Survey  Committee  of  State  Affairs. 
Special   reports,   1917. 

A  study  of  mental  defectives  in  state  institutions  for  minors, 

by  W.  A.  Treadway. 
The  administration  of  the  common  school  system,  by  A.  C. 

Monohan  and  Katherine  M.  Cook. 
A  state  home  and  training  school  for  mental  defectives,  by 
Alexander  Johnson. 


652  KEl'ORT  OF  JOINT  LEGISLATIVE   COMMITTEE 

The  Colorado  tax  commission  and  revenue  system  of  Colo- 
rado, by  R.  M.  Haig. 

A  revision  of  the  liighway  laws  of  the  state,  by  A.  N.  John- 
son. 

Publications. 

Special  report  1916. 

Summary  of  findings  and  recommendations  relating  to 
the  executive  branch  of  the  state  government  of 
Colorado  as  submitted  to  the  survey  committee  of 
state  affairs  by  its  staff. 

Special  reports  1917. 

Report  on  a  survey  of  the  office  of  governor  of  the  state 
of  Colorado.     Issued  February,  1917. 

The  work  of  the  Colorado  tax  commission  by  Pro- 
fessor Plobart  M.  Haig,  of  Columbia  University. 
With  a  letter  of  comment  by  Professor  E.  R.  S. 
Seligman. 

Report  on  the  revenue  system  of  the  state  of  Colorado, 
by  R.  M.  Haig. 

Report  on  a  survey  of  the  administration  of  public 
service,  functions  relating  to  regulation  and  super- 
vision of  labor. 

The  state  board  of  land  commissioners,  by  John  B. 
Geijsbeek. 

Report  on  a  survey  of  the  office  of  auditor  of  state  and 
of  the  office  of  public  examiner. 

Report  on  a  study  of  state  finances  and  budget  pro- 
cedure. 

Report  on  a  survey  of  the   office  of  state  treasurer. 

Report  on  an  inquiry  into  the  administration  and  sup- 
port of  the  Colorado  school  system.  C Bulletin  of 
the  U.  S.  Bureau  of  Education). 

Report  on  the  care  of  dependents,  delinquents  and 
defectives,  by  Samuel  W.  Hamilton,  Walter  L. 
Tredway,  Alexa"nder  Johnson. 

Report  on  a  survey  of  the  department  of  game  and 
fish. 

Report  on  a  survey  of  the  state  auditing  board. 

Report  on  a  survey  of  the  office  of  the  state  inspector 
of  oils. 

Connecticut  — 

Commission  on  the  consolidation  of  state  commissions  and  the  re- 
organization of  the  public  health  laws. 
Report,  1915. 
Idaho  — 

Administration  Consolidation  Law. 
Approved,  February  19,  1919. 


ON  ADMINISTRATIVE  REORGANIZATION  653 

Illinois  — 

Efficiency  and  economy  committee. 

Preliminary  report,  Jmie  i8,  1914. 
Report,  December  i,  1914- 
Final  report,  1915. 

The  appendices  to  this  report  include  the  followmg  mono- 
graphs by  special  investigators: 
Revenue    and    finance    administration,    by    John    A. 

Fairlie. 
The  accounts  of  the   state  of   Illinois,  by   George  E. 

Frazer,  C.  P.  A. 
Accounting  administration  for  correctional  institutions, 

by  Spurgeon  Bell. 
Charitable  and  correctional  institutions,  by  James  W. 

Garner. 
Educational  administration,  by  John  M.  Mathews. 
Labor  and  mining  agencies,  by  W.  F.  Dodd. 
Agricultural  administration,  by  James  W.  Garner. 
Public  health  administration,  by  John  M.  Mathews. 
Supervision  of  corporations,  by  Maurice  H.  Robinson. 
Public  Works,  parks  and  buildings,  byC.  O.  Gardner. 
Military  administration,  by  Quincy  Wright. 
Civil  service  laws,  by  A.  C.  Hanford. 
The  secretary  of  state  and  law  officers. 
Efficiency  and  economy  commissions  in  other  states,  by 
A.  C.  Hanford. 
The  civil  administrative  code  of  the  state  of  Illinois,  1917. 

Iowa  — 

Committee  on  Retrenchment  and  reform. 

Report  of  efficiency  engineers  with  reference  to  heating  plant 

at  state  house,  filed  in  the  secretary  of  state's  office.  May 

21,1913.     (not  printed). 
Consolidation    report   of   the   efficiency   engineers,    filed   in   the 

secretary  of  state's  office,  March  24,  1914.  (not  printed). 
Preliminary  report  with  recommendations.  November  12,  1914. 
Report  to  the   thirty-fifth   General    Assembly.         (Printed     in 

journals.) 

Senate  Journal  1913:    1646-47. 

House  Tournal  1913:    1932-33. 
Report  of  Quail  &  Parker,  efficiency  engineers,  relatmg  to  the 

state  department  of  agriculture,  state  fair  management  and 

passes. 

(Printed  only  in  journals). 

Senate  Journal  1913:     1649-1684. 

House  Journal  1913:     I935-I970- 
Report  providing  for  reorganization  of  state  government  with 

notes  to  bill  introduced.     (Printed  only  in  Senate  Journal.) 

Senate  Journal  1915:     443-459-  .,    ,\       ^     •,    0 

Second  report.     Resume   of  various  reports  filed  by  Ouail  ^' 

Parker,  efficiency  engineers.     (Printed  only  in  Journals.) 

Senate  Journal  1915  :     1716-24. 

House  journal  1915:    1S23-24. 


654  ■   KEPORT   OF   JOINT   LKCISLATIVE   COMMITTEE 

Statement  of  various  expenses  of  retrenchment  and  reform  com- 
mittee in  expenditure  of  $10,000  appropriation.  Submitted 
by  Senator  Chase.  (Printed  only  in  Senate  Journal.) 
Senate  Journal  191 5:  1442-44. 
Reorganization  Bill.  Senate  file  No.  519.  Senate  Journal  1915: 
2127. 
Kansas  — 

Efficiency  and  economy  commission. 
Reports : 

Partial  report,  1916. 

The  penal,  charitable  and  other  institutions  of  Kansas. 
The  state  educational  institutions. 

Economy   and   efficiency  report   of   Senator  J.   D.    Joseph, 
(Minority  report,  1916.) 
State  Board  of  Administration. 

Report,  1918. 
Business  manager. 

Report,  1918.     (In  report  of  state  board  of  administration, 

1918,  P  33-50-) 
Maryland  — 

Commission  on  efficiency  and  economy. 

Report  to  commission  on  efficiency  and  economy  by  Harvey  S. 
Chase,  certified   accountant,    1916. 

Massachusetts  — 

Commission  on  efficiency  and  economy. 

Report,  1913,  1914,  1915- 

Report  on  the  reorganization  of  boards  and  commissions  having 
supervision  and  control  of  state  institutions,  Feb.  7,  1914. 

Report  on  functions,  organization  and  administration  of  the 
departments  in  the  executive  branch  of  the  state  govern- 
ment, November,  1914. 

Report  on  budget  procedure,  May  2^,  1916. 
Supervisor  of  administration. 

Report,  1916,  1917,  1918. 

Recommendations  relative  to  increases  of  salaries  together  with 
an  outline  of  bills  on  consolidation  of  departments.  (House 
322)    1919. 

State  board  of  labor  and  industries.  A  report  on  the  reorgani- 
zation of  the  state  board  of  labor  and  industries.  (House 
1017). 

Consolidation  of  departments,  boards  offices  and  institutions, 
1919.  Supplementary  report  on  the  consolidation  of  depart- 
ments according  to  the  plan  recommended  in  the  annual 
report  for  the  year  1918.     (House  1357). 

Purchasing  and  distribution  of  office  furniture,  supplies,  and 
equipment,  1919.  The  recommendations  of  the  supervisor 
for  the  establishment  of  the  position  of  Superintendent  of 
Buildings  to  have  charge  of  the  purchasing  and  distribu- 
tion of  office  furniture,  supplies  and  equipment.  Up  to 
the  present  time  the  sergeant-at-arms  has  done  all  this 
purchasing.     (House  1378.) 


ON  ADMINISTRATIVE  RE(n<GAN' IZATION  655 

Consolidation  of  state  departments,  boards,  offices  and  insti- 
tutions, 1919.  The  second  supplementary  report  of  the 
supervisor  of  administration  on  consolidation  of  depart- 
ments.    (House  1414)-  ,  .... 

Consolidation  of  state  departments,  boards  and  institutions, 
1919.  The  third  supplementary  report  on  consolidation. 
(House  1430.) 

An  investigation  of  the  compensation  and  working  conditions 
of  the  officials  and  employes  of  the  commonwealth  and  of 
the  several  counties  thereof.  Report  of  the  supervisor  of 
administration  relative  to,  1919.     (House  I45i-) 

Conduct,  methods  and  practices  of  the  department  of  the  civil 
service  commission.  Report  of  the  supervisor  on  the  meth- 
ods and  practices  of  the  civil  service  commission  with 
recommendations  for  the  organization  of  a  civil  service 
commission  with  a  single  head. 
Special  committee  of  the  executive  council. 

Standardization  of  salaries  in  the  state  service. 

Governor  and  Council. 

Specifications  and  rules  for  the  classification  of  personal  service 
of  the  commonwealth  of  Massachusetts,  1918. 
Act   to   organize   in   departments   the   executive   and   administrative 

functions  of  the  commonwealth.     Approved  July  23,  1919. 

Minnesota  — 

Efficiency  and  Economy  Commission. 

Preliminary  report  May  25,   1914.     Plan  for  reorganizing  the 

executive  branch  of  the  state  government  of  Minnesota.  _ 
Final  report.    November  1914.    A  proposed  bill  for  reorganizing 
civil  administration  of  the  state  of  Minnesota. 
Commission  on  reorganization  of  civil  administration. 

Report  1916.      (Published  in  appendix  of  inaugural  message  of 
Governor  J-  A.  Burnquist.) 
Nebraska  — 

Civil  Administrative  Code.     Approved  April  19,  1919. 

New  Jersey  — 

Economy  and  Efficiency  Commission. 

Report,  1912,  1914,  I9i5>  1916,  igi?-  ^  ^  tt   it-  ij 

(Second  report,  1914,  included  in  message  of  James  t.  li^ielder, 
Governor  of  New  Jersey.) 

New  York  State  — 

Department  of  efficiency  and  economy. 

Comparative   analysis  of  appropriations.     June    1913. 
Specifications  recommended  by  advisory  board  of  department 
of   efficiency   and   economy  to   highway   department.     De- 
cember, 1913.  .    . 
Comparative  tabulations  of  requests  for  appropriations,  January, 

1914. 
State  budget  report,  March  1914. 


656  REPORT   OF   JOINT   LliCtSLATIVE   COMMITTEE 

Annual  report  of  department,  January  1915.  Five  volumes  as 
follows : 

Vol.  I       Budget  report. 
Vol.  II     Organization  and  functions  of  the  government  of 

the  state  of  New  York. 
Vol.  Ill   Report  on  investigation  of  cost  of  providing  free 

text  books. 
\'ol.  IV   Report  on  investigation  of  state  institutions : 

(i)  Accounting  methods,  (2)  Conditions  disclosed 
by  examinations,   (3)   Organization  and  adminis- 
tration of  hospitals  for  the  insane,  (4)  Problems 
of -construction,  (5)   Prisons  and  correctional  in- 
stitutions, (6)  Charitable  institutions. 
Vol..  V     Construction  and  maintenance  of  public  highways. 
Reconstruction  commission. 
Report  1919. 

Part  I       Proposed  plan  of  retrenchment. 
Part  II     Organization    of    present    and    proposed    depart- 
ment. 
Part  III  Administrative  consolidation  in  other  states. 
Part  I\'   The  budget. 
Part  V     Salaries  and  pensions. 
Part  VI    State  printing. 

Part  VII  Proposed  constitutional  amendments. 
Appendix  A.     Report  of  engineering  advisory  committee 

appointed  by  engineering  council. 
Appendix  B.     List  of  present  state  departments,  commis- 
sions and  other  agencies. 
Ohio  — 

Joint  committee  on  administrative  reorganization. 

Preliminary  report  1919. 
Field  agents. 

Reports  prepared  under  the  supervision  of  Dr.  L.  D.  Upson, 
Director  of  the  Detroit  Bureau  of  Governmental  Research, 
by- 

Harrington  Place 
Civil  service. 
C.  E.  Rightor 

Budget  commissioner 
Superintendent  of  banks  and  banking 
State  insurance  department 
Department  of  finance 

Department  of  building  and  loan  associations 
C.  E.  Rightor  and  Henry  Stefifens,  Jr. 

Auditor  of   state 
Arch  Man  del 

Industrial  commission 
Secretary  of  state 
State  fire  marshal 
State  oil  inspector 
Henry  StefFens,  Jr. 
Treasurer  of  state 


42 


ON  ADMINISTRATIVE  REORGANIZATION  65/ 

Reports  by   Dr.   William   H.   Allen,   Director   of    Institute   for 
Public  Service: 
Tenure  of  voluntary  boards 
Need  for  rotary  funds 

Ohio    state    archcxological  and  historical  society 
One  head  for  four  in  administering  welfare  institutions 
Citizen  co-operation  needed  by  director  of  welfare  admin- 
istration 
Physical  education  for  the  blind  and  deaf 
Preventive  education  for  sub-normals 
Opportunities  for  the  Ohio  board  of  administration  that  do 

not  require  reorganization 
Ohio  commission  for  the  blind 
Ohio  soldiers'  and  sailors'  orphans'  home 
Board  of  clemency 
-     Ohio  board  of  state  charities 
State  department  of  health 
Tuberculosis  sanatorium 
Bureau  of  vital  statistics 
State  leadership  in  Ohio  education 
Ohio's  state  supported  education  _ 

Suggestions    by    Ohio's  state  faculties    for    Ohio  s  public 

education  .  ,     ,      r 

Suggestions   bv    county    and   city_  superintendents    for   im- 
proving Ohio's  public  education 
High  spots  in  Ohio  schools 
Ohio's  state  department  of  public   instruction 
Incr'ease  the  salary  of  Ohio's  state  superintendent  of  public 

instruction 
Abolish  state  board  of  school  examiners 
Examining  boards   belong  in   educational   department 
State  library  service 
An  art  commission  for  Ohio 
Shall  Ohio  have  a  chancellor  of  education 
Representative  state  educational  council 
Tax  assessments  for  school  revenues 

Possible  forward  steps  in  Ohio  education  without  reorgan- 
izing the  state  department  of  education 
Unsettled  educational  problems  in  Ohio_ 
Ohio's  state  provision  for  teacher  training 
Advertising  the  rewards  of  teaching 
Normal  college  or  normal  school 
Loan  funds  for  students  preparing  to  teach 
Shall  the  teaching  profession  be  subsidized 
Ohio's  county  normal  schools 
College  credit  for  county  normal  work 
Slacker  counties  in  teacher  training 
Ohio's  three  universities 
Faculty  organization 
Interchangeable  credit 
Remunerative   work  by   faculties 

Non-remunerative  diversion  of  f acultv  energy  _      _ 

Annual  reports  and  catalogues  of   Ohio  educational  insti- 
tutions 


658  REPORT  OF  JOINT  LEGISLATINE   COMMITTEE 

Non-resident  students  in  Ohio  universities 

Ohio's  need  for  junior  colleges 

Combined  normal  and  industrial  department  at  Wilberforce 
university 

Ohio  state  university 

College  of  education 

Organization  for  research 

Graduate  school  and  graduate  work  in  Ohio  state  university 

Medical  and  near  medical  colleges.  O.  S.  U. 

Finding  positions  for  teachers  and  teachers  for  positions 
Reports  by  Gaylord  C.  Cummin,  Institute  for  Public  Service: 

Adjutant  general's  department 

State  geologist 

Public  utilities  commission 

Department  of  public  vi^orks 

State  building  commission 

Commissioner  of  soldiers'  claims 

Superintendent  of  buildings 

State  highway   department 

Commissioner  of  securities 

State  printing 

Proposed  new  penitentiary 
Report  by  S.  H.  Wolfe: 

Ohio's   state   insurance  fvmd 
Reports  by  Dr.   Don  C.   Sowers,   Director,  Akron  Bureau  of 

Municipal  Research: 

Office  of  the  governor 

State  department  of  agriculture 

Ohio  agricultural  experiment  station 

Tax  commission 
Report  by  J.  I.  Falconer: 

State  farms 
Reports  by  C.  B.  Galbreath : 

Shall  the  state  insurance   fund  pay  the  cost  of  its  admin- 
istration? 

Administrative  reorganization  in  other  states 

Bibliography  on  efficiency  and  economy  with  special  refer- 
ence to  state  government 
Oregon  — 

Consolidation  commission. 
Report,  1918. 
Final  report,  1919. 
Pennsylvania  — 

Efficiency  and  economy  commission. 
Report,  1914. 
Wisconsin  — 

The  state  board  of  public  afTairs  of  Wisconsin 
Reports  submitted  to  the  legislature : 

(i)   Survey  of  the  university  of  Wisconsin. 

(2)  Survey  of  the  normal  schools. 

(3)  Survey  of  the  high  schools. 

(4)  Survey  of  the  rural  schools  (1913  legislature.) 

(5)  Investigation  of  the  feasibility  of  a  central  board  of 
control  for  all  public  educational  institutions. 


ON  ADMINISTRATIVE  REORGANIZATION  659 

(6)  Investigation  of  the  efficiency  and  cost  of  state  print- 
ing. 

(7)  State  receipts   and  expenditures   1903-1914. 

(8)  State  budget.  .    . 
Report  submitted  to  the  civil  service  commission: 

(i)   Departmental  organization  and  efficiency  of  state  em- 

PublicationsTssued  by  this  board,  other  than  those  addressed 
to  the  legislature:  .  „     •  i    *•  „ 

( 1 )  Co-operation  among  farmers  ;  especially  in  marketing. 

(2)  Agricultural  co-operation. 

(a)  Co-operative  Hve  stock  breeding. 

(b)  Co-operative  cow-testing. 

(c)  Co-operative  creameries  and  cheese  factories. 

(d)  Co-operative  live  stock  shipping. 

(e)  Co-operative  fruit  growers'  association. 

(f)  Co-operative  ware-houses. 

(g)  Co-operative  elevators. 

(h)   Mutual  telephone  companies. 

(3)  Co-operative  marketing. 

(4)  Municipal  markets. 

(5)  The  marketing  of  Wisconsin  cheese. 

(6)  The  problem  of  rural  credit  or  farm  finance. 

(7)  State  loans  to  farmers. 

(a)  In  other  countries. 

(b)  In  the  United  States. 

(c)  History  of,  in  New  York,  New  Jersey  and  Wis- 
consin. 

(8)  The  Budget.  ,         •     i:-     i     ^ 

(a)  Budgetary  practices  and  procedure  in  England, 
Germany,  France,  Switzerland,  Belgium,  Canada 
and  in  Congress  and  the  forty-eight  states  of  the 
United  States. 

(b)  A  plan  for  Wisconsin. 

Publication  issued  by  the  department  of  agricultural  economics 
University  of  Wisconsin,  covering  investigations  conducted 

by  that  department  at  the  request  of  this  board. 
(i)   Marketing  and  price  of  Wisconsin  cheese. 

(2)  Marketing  of  Wisconsin  potatoes. 

(3)  Farm  credit  in  Wisconsin. 


INDEX 


Accounting  — 

Department  of,  IIG. 
Accounts  — 

Bureau  of,  140. 
Adjutant  general's   department  — 

Report  on,  107. 
Administration,  board  of — 

Opportunities  that  do  not  require  re- 
organization of,  531. 
Administrative    organization     of     Ohio 
state  government  — 

Chart    of,    as    at    present,    opposite 
page  4;  chart  of  as  proposed,  op- 
posite page  6. 
Administrative    reorganization    in    other 
•    states  — 

Report  on.  575. 
Administrative       reorganization,       joint 
committee  on  — 

Preliminary  report  of,  VII;  resolu- 
tion proposed  by,  XII. 
Agriculture  — 

Report  on  state  department  of,  83. 
Agricultural  experiment  station  — 

Report  on,  101. 
Alabama  — 

Administrative      reorganization     in, 
577. 
Allen,  Dr.  William  H.  — 

Reports  by,  183,  191,  195,  305,  307, 
315,  321,  325,  326,  327,  329,  331, 
333,  337,  342,  361,  360,  374,  385, 
391,  395,  399,  400,  401,  406,  410, 
422,  429,  436,  440,  447,  451,  455, 
463,  467,  469,  480,  481,  487,  488, 
494,  496,  499,  514,  518,  519,  523, 
552,  556,  564. 
Allen,  Dr.  William  H.  and  Rosenbluth, 
Robert  — 

Report  by,  531. 
Arbitration,  268. 

Archaeological     and     historical     society, 
Ohio  state  — 
Report  on,  331. 


(Condensed.) 

Art  commission  for  Ohio  — 

Report  on,  333. 
Auditor  of  state  — 

Report  on,  110;  comments  by,  550. 
Automobiles  — 

Division  of,  134. 

B. 

Banks      and      banking,      superintendent 
of  — 

Report  on,  172. 
Bibliography  on  efficiency  and  economy 
with  special  reference  to  state  gov.ern- 
ment  — 

Report  on,  648. 
Blind,  the  — 

Physical    education    at    school    for, 
514;  commission  for,  518. 
Blind,  state  school  for,  544. 
Boiler  inspection  — 

Division  of,  262. 
Boiler  rules  — 

Board  of,  263. 
Bowling  Green  normal  school  — 

Report  on,  374,  378. 
Budget  commissioner  — 

Report  on,  43. 
Building  and   loan  associations,   depart- 
ment of  — 

Report  on,  178. 
Building  commission,  state  — 

Report  on,  238. 
Buildings,  superintendent  of  — 

Report  on.  218. 


California  — 

Admiiiistrative     reorganization     in, 
579. 
Catalogues  and  reports,  annual  — 

Report  on,  401. 
Cell,  double  — 

In    penitentiary    and    reformatories, 
537.  ■       •     • 


(661) 


662 


Chancellor     of     education,     shall     Ohio 
have  ?  — 

Report  on,  487. 
Charities,  Ohio  board  of  — 

Report  on,  523. 
Citizen  co-operation  needed  by  director 
of  welfare  administration  — 
Report  on,  564. 
City  superintendents  — 

Suggestions  by.  337. 
Civil  service  — 

Report  on,  59. 
Claims  — 

Division  of,  249. 
Clemency,  Ohio  board  of — 

Report  on,  552. 
College  credit  for  county  normal  work- 
Report  on,  480. 
College  of  education  — 

Report  on,  455. 
Colorado  — 

Administrative      reorganization      in, 
585. 
Commission  for  the  blind  — 

Report  on,  518. 
Commissioner  of  securities  — 

Report  on,  160. 
Commissioner  of  soldiers'  claims  — 

Report  on,  108. 
Commitments  to  institutions,  535. 
Connecticut  — 

Administrative      reorganization     in, 
586. 
Corporation  division,  132. 
County  normal  schools  — 

Report  on,  469;  college  credits   for 
work  in,  480. 
County  superintendents  — 

Suggestions  by,  337. 
Cummin,  Gaylord  C.  — 

Reports  by,  107,  108,  151,  160,   198, 
213,  218,  238,  240,  301,  566. 


Dairy  and  food  division,  86. 
Deaf,  the  — 

Physical    education    at    school    for, 
514. 
Delaware  — 

Administrative     reorganization     in, 
586. 
Denney,  Dean  J.  V.,  O.  S.  U. — 
Letter  from,  355. 


Education  — 

Possible  forward  steps  in  Ohio  with- 
out reorganization,  369. 
Education,  college  of  — 

Report  on,  455. 
Education,  department  of  — 

Possible     forward     steps     in     Ohio 
without  reorganization,  369. 
Education,  public  — 

Suggestions  for  improving,  337,  342. 
Education,  state  leadership  in — 

Report  on,  305. 
Education,  state  supported  — 

Report  on,  307. 
Educational        council,        representative 
state  — 
Report  on,  329. 
Educational  department  — 

Examining  Jjoards  belong  in,  361. 
Elections  — 

Bureau  of,  129. 
Employment  offices  — 

Division  of,  267. 
Examining  boards  belong  in  educational 
department  — 
Report  on,  361. 


F. 

Faculties  — 

Remunerative   work  by,    395;    non- 
remunerative  diversion  of  energy, 
399. 
Faculties,  Ohio  State  — 

Suggestions  by,  342. 
Faculty  organization  — 

Report  on,  391. 
Fair  administration  — 

Bureau  of,  84. 
Falconer,  J.  I.  — 

Report  by,  94. 
Farms,  state  — 

Report  on,  94. 
Feeds  and  fertilizers  — 

Bureau  of,  89. 
Field  investigators  — 

Names    and    brief    sketches    of,    2; 
summary  of  recommendations  of, 


Film  censorship  — 

Department  of,  268. 

Finance,  department  of 
Report  on,  140. 


INDEX 


663 


Fire  marshal,  state 
Report  on,  293. 

Fish  and  game  — 
Bureau  of,  89. 


Galbreath,   C.   B.— 

Reports  by,  290,  575,  648. 
Geologist,  state  — 

Report  on,  240. 
Girls'  industrial  school  — 

Conditions  in,  504. 
Governor  — 

Report  on  office  of,  39. 
Graduate  school  and  graduate  work  in 
Ohio  state  university  — 

Report  on,  422. 


Inventory  of  property,  117. 
Investigation  and  statistics  — 

Department  of,  265 ;  division  of,  266. 
Investigators  — 

Names    and    brief    sketches   of,    2 ; 
summary  of  recommendations  of, 
3. 
Iowa  — 

Administrative     reorganization      in, 
604. 

J. 
Junior  colleges,  Ohio's  need  for  — 
Report  on,  385. 


K. 


Kent  normal  school  — 
Report  on,  374,  378. 


H. 

Hammond,  Professor  M.  B.,  O.  S.  U. — 

Letter  from,  356. 
Health,  state  department  of  — 

Report    on,   183;   letter   from    com- 
missioner of,  188. 
Horticulture  — 

Bureau  of,  90. 

I. 

Idaho  — 

Administrative     reorganization     in, 
587. 
Illinois  — 

Administrative      reorganization     in, 
590. 
Income  and  taxation  — 

Bureau  of,  140. 
Industrial  commission  — 

Report  on,  242. 
Industrial  school  for  boys,  546. 
Insane,  state  hospital  for,  548. 
Inspection  — 

Department  of,  257. 
Inspection    and    supervision    of    public 
offices  — 

Bureau  of,  124. 
Institutional  discipline  and  work,  543. 
Insurance  department,  state  — 

Report  on,  164. 
Insurance  fund,  Ohio's  state  — 

Report  on,  273;  shall  it  pay  cost  of 
its  administration?  290. 
Interchangeable  credit  for  work  in  Ohio 
schools  — 

Report  on,  400. 


L. 

Lands,  supervision  of  — 

School,    120;    ministerial,   120;   cus- 
tody of  records  of,  120. 
Leadership  in  Ohio  education  — 

Report  on,  305. 
Library  service,  state  — 

Report  on,  327. 
Live  stock  industry  — 

Bureau  of,  85. 
Loan   funds    for   students   preparing   to 
teach  — 

Report  on,  467. 

M. 
Mandel,  Arch  — 

Reports  by,  127,  242,  293,  298. 
Markets  — 

Bureau  of,  91. 
Massachusetts  — 

Administrative     reorganization     in, 
614. 
Mediation  and  arbitration  — 

Division  of,  268. 
Medical   and    near-medical    colleges,    O. 
S.  U.- 
Report  on,  436. 
Medical  care  at  institutions,  540. 
Miami  university  — 

Report  on,  374,  378. 
Mines  — 

Division  of,  264. 
Minnesota  — 

Administrative     reorganization     in, 
625. 


664 


Motor  vehicles  — 
Bureau  of,  141. 

N.      ■ 
Nebraska  — 

Administrative      reorganization      in, 
626. 
New  Jersey  — 

Administrative     reorganization      in, 
633. 
New  York^ — 

Administrative     reorganization     in, 
635. 
Non-remunerative,  diversion   of    faculty 
energy  — 

Report  on,  399. 
Non-resident  .students  in  Ohio  universi- 
ties- 
Report  on,  406. 
Normal  college  or  normal  school  ?  — 

Report  on',  447. 
Normal  schools,  Ohio's  county  — 
Report  on,  469. 


Ohio's  state  insurance  fund — 

Report  on,  273;  shall  it  pay  cost  of 
;   .    .its  administration?  290. 
Ohio  state  university^ 

Report  on,  374,  878,  410;  -use,  non- 
use  and  partial  use  of  buildings 
of,  411,  414,. 417,  418,  419;  grad- 
uate school  and -graduate  work  in, 
422 ;  medical .  and  near  medical 
colleges  in,  430. 
Ohio  university  — 

Report  on,  374,  37& 
Oil  inspector,  state  — 

Report  on,  298. 
One    head     for    four    in    administering 
welfare  institutions  — 
-Report  on,  499. 
Opportunities    for    the    Ohio    board    of 
administration    that    do    not     require 
reorganization  — 
Report  on,  531, 
Oregon  — 

Administrative     reorganization      in, 
641. 
Orphans'  home,  556. 


Parole,  534. 
Penitentiary,  545.  '    - 
Penitentiary,  proposed,  new  — 

Report  on,  566. 
Physical  education  at  the  schools  for  the 
blind  and  the  deaf  — 

Report  on,  514. 
Place,  Harrington  — .  ; 

Report  by,  59. 
Preventive    education     as     lo     sub-nor- 
mals — 

Report  on,  519. 
Printing,  state-— 

Report  on,  151. 
Probation  and  parole,  584. 
Proposed  new  penitentiary  — 

Report  on,  566. 
Public   education-^ 

Suggestions  for  improving,  337,  342. 
Public  instruction,  state  department  of  — 

Report  on,  315. 
Public  works,  department  pf  — 

Report  on,  213= 
Public  utilities  commission  — 

Report  on,  301. 
Purchasing  — 

Bureau  of,  143. 
Purchasing  department,  state,  137. 

■■■"  ■'  R.    " -   - 

Recommendations,  summary  of  — 

■  Report  on,  3. 
Reformatory  for  men,  545. 
Reformatory   for  women,   536,.  547. 
Remunerative  work  by  faculties  — 

Report  on,.  895. 
Reorganization        (administrative)        in 
other  states —  • 

Report  on,  575. 
Reports  and  catalogues,  annual  — 

Report  on,  401.- 
Research,  organization  for-^ 

Report  on,  429. 
Rightor,  C.  E. — 

Reports, by,  43,  140,-164,  172,  178. 
Rightor,  C  E,  and  Steffeiis,  Henry,  Jr.— 

Report  by,  110. 
Kosenbluth,  Robert  nnd   Allen,  Or.  Wil- 
liam H.  — 

Report  liy,  531. 
K'otary.  funds,  need  for-- 

Report  on,  490. 


66: 


S. 

Salary   of   superintendent   of   public   in- 
structions- 
Report  on,  321. 
Scliool  examiners,  state  board  of  — 

Report  on,  326. 
Sciiooling  for  prisoners,  537. 
Scientific    investgations    at    institutions, 

540. 
Secretary  of  state  — 

Report  on,  127. 
Securities,  commissioner  of  — 

Report  on',  160. 
Slacker  counties  in  teacher  training  — 

Report  on,  481. 
Soldiers'  -and    sailors'   orphans'   home  ^ 

Report  on,  556. 
Sowers,  Dr.  Don  G.— 

Reports  by,  3,  39,  83,.  101,  146. 
State  charities,  Ohio  board  of  — 

Report  on,  523. 
State  farms  — 

Report  on,  94. 
State  geologist  — 

Report  on,  240. 
State  highway  department  — 

Report  on,  198. 
State  House  — 

Inspection  of,  by  representative  of 
industrial  commission,  225 ;  of  de- 
partment of  state  fire  marshal, 
232 ;  of  state  health  department, 
235. 
State  insurance  fund,  shall  it  pay  the 
cost   of    its   administration?  — 

Report  on,  290. 
State  library  service  — 

Report  on,  327. 
State  printing  — 

Report  on,  151. 
Statistician  — 

In  office  of  auditor  of  state,  121. 
Statistics  and  elections  — 

Bureau  of,  129. 
Steam  engineers  — 

Division  of,  265. 
Stefifens,  Henry,  Jr. — 

Report  by,  144. 
SteiTens, "  Henry,    Jr.,    and    Rightor,    C. 
K  — 

Report  by,  110. 
Sub-normals  — 

Preventive  education  as  to,  519. 


Subsidy  — 

For  teachers,  463. 
Suggestions  for  improving  Ohio's  pub- 
lic education  — 

Report  on,  337,  342. 
Superintendent  of  buildings  — 

Report  on,  218. 
Superintendent  of  public  instructiofi,  in- 
crease salary  of  — 

Report  on,  321. 


Tax  assessments  for  school  revenues  — 

Report  on,  325. 
Tax  commission  — 

Report  on,  146. 
Taxation  — 

Bureau  of,  140. 
Teacher  training,  state  provision   for  — 

Report  on,  440 ;  slacker  counties  in, 
481. 
Teachers  — 

Finding  positions  for,  451. 
Teachers  — 

Finding  teachers   for  positions,  451. 
Teaching,  advertising  the  rewards  of  — 

Report  on,  447. 
Teaching  profession,   shall   it  be   subsi- 
dized ?  — 

Report  on,  463. 
Tenure  of  voluntary  boards  — 

Report  on,  494. 
Texas  ■ — 

.Administrative     reorganization      in, 
644, 
Treasurer   of   state  — 

Report  on,  144. 
Treasury  — 

Bureau  of,  142. 
Tuberculosis  sanatorium  — 

Report  on,  191. 

U. 

Universities,  Ohio's  three  — 

Report    on,    374 ;    non-resident    stu- 
dents in,  406. 
University  buildings  — 

Use,  non-use  and  partial  use  of,  382, 
383,  384,  411,  414,  417,  418,  419. 


666 


Unsettled      educational      problems      in 
Ohio  — 
Report  on,  488. 
Upson,  Dr.  L.  D. 

Reports  prepared  under  direction  of, 
43,  59,  110,  127,  140,  144,  164,  172, 
178,  242,  293,  298. 
Utilities  commission,  public  — 
Report  on,  301. 


V. 
Virginia  — 

Administrative      reorganization      in. 
646. 
Vital  statistics,  bureau  of  — 
Report  on,  195. 


W. 
Welfare  administration  — 

Citizen   co-operation   needed  by  di- 
rector  of,    564. 
Welfare  institutions,  one  head  for  four 
in  administering  — 
Report  on,  499. 
Wilberforce    university,    combined    nor- 
mal and  industrial  department  at  — 
Report  on,  481. 
Wolfe,  S.  H.— 

Report  by,  273. 
Woman's  reformatory,  536,  547. 
Workmen's  Compensation  — 

Department  of,  247. 
Workmen's  compensation  fund  — 

Report  on,  273. 
Workshops  and  factories  — 
Division  of,  257. 


W   Ub^Z« 


